Report 

i- of 

Rochester Milk Survey 

by the 

Committee on Public Safety 

of the 

Common Council 



Charles E. North, M. D., Director 

December, 1919 





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Report 

of 

Rochester Milk Survey 

by the 

Committee on Public Safety 

of the 

QqJ^sJzx. Common Council 




Charles E. North, M.D., Director 

December, 1919 



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o; of B* 

Jul 23 1920 



GENERAL INTRODUCTION 

In response to a widespread demand on the part of many of the 
citizens of Rochester for an official investigation of the high cost of milk, 
and the recognition by the city officials that the cost of milk had greatly 
increased in recent months, the Common Council of the City of Roch- 
ester planned to conduct a milk survey in accordance with the following 
resolution : 

City Clerk's Office, 
City Hall, 
Rochester, N. Y., July 10, 1919. 
To Whom It May Concern : 

I Hereby Certify, That at a session of the Common Council of the City of 
Rochester, held in the City Hall on Tuesday, April 22, 1919, an ordinance was 
adopted, of which the following is a true copy ; and that at the time said ordinance 
was adopted the Common Council of said City consisted of twenty-four members. 

By Ald. Hart — 

Be it ordained by the Common Council of the City of Rochester as follows : 

Section 1. The Committee on Public Safety of the Common Council is hereby 
authorized and directed to investigate and inquire into the distribution of milk used 
in the City of Rochester and the sanitary conditions surrounding the same and the 
cost thereof ; and as to the expediency of the purchase and distribution by the city 
of all milk used in the city; and as to the expediency and expense of any other 
method designed to secure the control by the city of the distribution of milk; and 
into the production of milk used in the City of Rochester and the sanitary conditions 
surrounding the same and the cost thereof ; and as to the expediency and expense 
of the production by the city on municipally owned farms of all milk used in the 
city; and to report to the Common Council the result of its investigation with such 
recommendations concerning the same as it deems proper. 

Sec. 2. The employment of one or more experts to assist said Committee in its 
investigation is hereby authorized, such employment to be without competition, at 
a compensation to be fixed by the Board of Estimate and Apportionment, and it is 
hereby declared to be impracticable to procure the services of such experts by com- 
petitive contract. 

Sec. 3. This ordinance shall take effect immediately. 

Adopted by the following vote : 

Ayes — Aldermen Cauley, Ward, Hart, Somers, Friedler, Rosenberg, Messinger, 
Kane, Steelsmith, Carroll, Chilson, Cook, Russell, O'Neil, Bareham, Stahley, Rap- 
pleye, Morgan, Hoffman, DePotter, Dentinger, Hannahs, Ruppel.— 23. 

Nays — None. 

And I further certify that said ordinance was submitted to His Honor, the 
Mayor of said City of Rochester, by whom the same was approved. 

Attest : JOSEPH A. CRANE, 

City Clerk. 

The present director of this survey was employed by the City of 
Rochester to organize and conduct a milk survey, beginning on July 
8th, 1919. 



MILK SURVEY OF THE CITY OF ROCHESTER 



A SURVEY OF MILK SURVEYS 

In order that the proposed survey might be planned in a manner 
that would insure results of the most practical value to the city, con- 
sideration was first given to the work performed in previous milk sur- 
veys. All of these include plans of organization, subjects of study, and 
recommendations which are contributions to the plans for the Rochester 
Survey and a brief consideration of them will form the best possible 
introduction to the present Rochester Survey. 

The list of these surveys is as follows: 



Date 

1911-12 

1915 



Place 
Rochester, N. Y. 
Detroit, Mich. 



1916-17 New York State 



1917 
1917 

1917 

1917 



1917 
1919 

1919 
1919 
1919 
1919 



Berkeley, Cal. 
New York City 

New England 

Pennsylvania, 

Maryland, 

Delaware 

Canada 

New York State 

Spokane, Wash. 
Winnipeg, Man. 
New York City 
New York State 



1919 New York State 



Auspices 
Private 
U. S. Dept. of Agriculture 

New York State Senate 

and Assembly 
University of California 
Mavor's Committee on 

Milk 
Boston Chamber of 

Commerce 
Governors' Tri-State 

Commission 

Food Controller 

Council of Farms and 
Markets 

Chamber of Commerce 

City Council 

Private 

Governor's Commission on 
High Cost of Living 

New York State Recon- 
struction Commission 

(Committee on Food Pro- 
duction and Distribution) 



Directed by 
Dr. John R. Williams 
C. E. Clement and 
G. P. Warber 
Senator Wicks 

Elwood Mead 

Dr. Charles E. North, 

Chairman 
R. W. Bird, Chairman 
Dr. A. G. Gilbert, Secretary 
Dr. Clyde L. King, 

Chairman 

P. B. Tustin, Chairman 
W. A. Dana, Chairman 

J. K. McCormack, Chairman 
R. D. Hughes 
I. G. Jennings 
Martin H. Glynn and 
John H. Finley 
Thomas V. Patterson, 

Chairman 
Herschel H. Jones, 

Secretary 



1911-12, Rochester, N. Y. ("The Economic Problems of Milk Dis- 
tribution in their Relation to the Public Health," by Dr. John R. 
Williams. Transactions of the Fifteenth International Congress on 
Hygiene and Demography, Washington, D. C, 1912.) 

The studies in this survey were confined strictly to the City of 
Rochester, and were conducted entirely under the auspices of Dr. John 
R. Williams, of Rochester, at his own private expense. The time con- 
sumed in the investigation was over one year and a half, and a number 
of investigators were employed by Dr. Williams. Not only because this 
survey deals particularly with the City of Rochester, which is the sub- 
ject of the main survey in our own report, but also because it was the 
first and by far the most comprehensive survey yet made of the cost of 
milk distribution and the unnecessary expenses connected with the same, 
it is desirable to consider the material in this report in some detail. It 



MILK SURVEY OF THE CITY OF ROCHESTER 



will also be interesting to compare the conditions prevailing in 1911 with 
the conditions prevailing in 1919. 

The first branch of Dr. Williams' study in Rochester consisted of a 
house to house canvass in 15 sections of the city, each containing from 
100 to 700 homes. In all about 5,000, or about one-tenth of the homes 
in the city were visited. The results of this investigation are given in the 
table below : 



MILK SURVEY OF THE CITY OF ROCHESTER 



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MILK SURVEY OF THE CITY OF ROCHESTER 7 

Attention is called to the fact that the proportion of children under 
5 years of age is greater among the poor than among the well-to-do, and 
that the use of store milk and Qondensed milk is confined largely to the 
laboring classes, which, it is suggested, is due to lack of refrigerators or 
ice. 

The most interesting part of this table shows the large number of 
milkmen going into each district. In section No. 4, 273 homes are sup- 
plied by 27 distributers travelling more than 25 miles, whereas one dealer 
could render the same service travelling not more than 2.6 miles. In 
section No. 8 are 57 distributers travelling over 30 miles supplying 363 
homes, which could be served by one distributer travelling 1.7 miles. The 
report points out the great wastefulness of the present system of distribu- 
tion, due to duplication. 

Another important branch of this investigation consisted of a study 
of the cost of distribution. Information was secured from 173 dis- 
tributers. Almost all, excepting half a dozen, had no accounting system, 
and approximate costs were arrived at by enquiry into the businesses. 
The results of this enquiry are shown in the following table : 



8 MILK SURVEY OF THE CITY OF ROCHESTE R 

TABLE No. 2 

TABLE SHOWING THE TOTAL ACCOUNTING OF MILK DISTRIBUTERS 

IN ROCHESTER, GROUPED ACCORDING TO THE 

VOLUME OF BUSINESS DONE 



Schedules. 



Distributers selling daily- 









fe-r 



3 O 



Distributers, number . 

Milk, retail, quarts 

Milk, 'wholesale, quarts 



Total milk sold, quarts. 

Men employed, number . . . . 
Horses employed, number . 
Wagons employed, number 
Length of route, miles . . . . 
Customers, number 



Value milk-room equipment. 
Value horses and wagons... 
Value real estate 



Total investment 



Interest, depreciation on investment. 

Cost of coal and ice 

Milk shrinkage, waste, etc 

Maintenance horse and wagon 

Daily wages, labor 

Cost of bottles 



Total cost distribution. 
Amount paid producer 



Total cost to distributer. 



Milk receipts, retail . . . . 
Milk receipts, wholesale 
Cream receipts 



25 



101 



2,887 21,368 
129! 2,411 



3,016 

29 

34 

26 

199 

1,885 



$2,407 
8,B15 



$11,222 

$ 6.17 

,/,8.92 

4.35 

25.30 

5.60 

7.38 



$57.72 
128.71 



23,799 

133 

160 

137 

1,053 

13,915 



$17,295 
45,105 



$62,400 

$ 34.17 
42.25 
36.59 
152.50 
48.95 
77.36 



$392.82 
999.55 



$186.43|$1,392.37 



$213.31 
1.00 
6.75 



$1,535.05 
138.26 
60.84 



Total receipts 



Labor profit 
Labor loss . , 



$220.06 

$37.59 
3.96 



$1,734.15 
$341.78 



44 

17,180 
3,415 



20,599 

99 
101 

92 

616 

9,490 



$16,750 
28,495 



$44,245 

$ 25.16 
39.03 
28.55 
101.00 
74.20 
74.89 



$342.83 
880.44 



$1,223.27 

$1,254.67 
195.87 
106.20 



$1,556.74 
$333.47 



8,900 
6,000 



14,900 

95 

65 

50 

641 

9,800 



$38,450 
25,035 
96,700 



$160,185 

$ 45.15 

17.20 

14.55 

100.00 

193.06 

21.00 



$390.98 
886.40 



$1,277.38 

$628.00 

314.50 

67.51 



$1,366.01 

$78.58 



173 

50,335 
11.947^ 



62,314 

356 

360 

305 

2,509 

35,090 



$76,902 

107,450 

96,700 



$278,052 

$ 110.65 
107.40 
84.04 
378.80 
321.81 
180.63 



$1,184.35 
2,895.10 

$4,079.45 

$3,685.03 
548.63 
241.50 



$4,876.96 
$791.42 



MILK SURVEY OF THE CITY OF ROCHESTER 9 

The report points out that the above tabulation indicates that most 
of the milk distributers make only a very meagre living, in many cases 
the income being much less than that of laborers and unskilled mechanics. 

The third branch of this investigation consisted in a most unique 
experiment to determine the cost of distribution under a single service 
system. It was assumed that an ideal delivery system would consist of 
one truck and a crew of men supplying one, section of the city. Accord- 
ingly, an electric truck was furnished by an electric vehicle company 
having a capacity of 1,000 pounds. In place of milk, several pigs of lead 
which equalled in weight a load of milk were carried. Besides a driver 
there were two clerks supplied with apparatus for accurately measuring 
distance and time. There were two men who carried fictitious bottles of 
milk from the truck into the homes. Each was equipped with a steel 
basket similar to that used by milkmen containing 2 quarts and 3 pint milk 
bottles filled with water. Literature relating to the pure milk movement 
was deposited in the milk boxes of each house in place of milk, and 
notations made regarding conditions at the house which would equal in 
time the labor performed by the present milk peddlers. Each stop made 
by the truck was timed with a stop watch, and recorded. The distance 
travelled was measured by an odometer, and confirmed by map measure- 
ments. Each operation by the delivery men was measured and recorded 
upward of 200 times. Previous to the experiment a number of ordinary 
milkmen were timed without their knowledge to secure an average of the 
time occupied by them in going from the wagon to the house and return 
to it again. This experiment in milk delivery was conducted in the well- 
to-do 4istrict and again in one of the crowded sections of a poor district. 
The results of this experiment are recorded in the table on next page. 



10 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. 3 
TABLE^EXPERIMENT IN MILK DISTRIBUTION 





Streets. 




Baden, 

Catherine, 

Vienna, 

Morris, etc. 


Barrington, 
Dartmouth, 
Westmin- 
ster Road. 
Rutgers. 


Families Hving in single houses, number 


248 
202 
154 


248 


Families living in double houses, number. 


52 


Families living in apartments, number 


23 


Total families visited in section, number 

Houses having milk boxes, number 


604 

11 
593 
1.3 

785 
1.6 
1.7 

30 
78 

H. m. s. 

46 

2 

34 45 

1 25 15 


359 
297 


Houses having no milk boxes, number 

Average amount milk used daily in homes, quarts 

Total amount milk used daily in section, quarts 

Total length streets in section, miles 


52 

3 

1,077 

2.5 


Distance travelled bv truck in section, miles 


2.4 


Distance travelled by present peddlers in supplying sec- 
tion, miles 

Stops made bv truck, number 


38 
67 


Average time required to go from truck to each two 

houses, leave milk, and return to truck 

Total time of experiment 

Total time truck was in motion 


H. m. s. 

62 

2 

40 2 


Total time truck was standing still 


1 19 15 



In the first, or well-to-do section, the truck travelled 2.4 miles to 
supply milk which the regular milkmen were supplying in this territory 
by driving 38 miles. In the poorer section, the experimental truck trav- 
elled 1.7 miles to make deliveries which were being made by the local 
milkmen with a travel of 30 miles for the same work. 

In the well-to-do district where families used an average of 3 quarts 
each it was estimated that 1,077 quarts of milk could have been distributed 
in 2 hours, while in the poorer district where the families used 1.3 quarts, 
it was estimated that in 2 hours the experimental truck could deliver 
785 quarts. These figures represent the work of men physically untrained 
for active work. 

As a result of the experiment, the author concluded that 1 truck 
drawn by 2 horses and manned by 3 men could deliver an average of 
3,200 quarts of milk in 1 working day. As an example of the economy 
under this ideal system compared with the waste under the old system, 
the author quotes a number of instances in various districts of the city, 
among which is the following: 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. 4. 



11 



UNDER PRESENT SYSTEM 

29 men at $1.16 per day $33.63 

34 horses and 26 wagons, mainten- 
ance 26.00 



Total $59.63 



UNDER MODEL SYSTEM 

3 men at $2.50 per day $7.50 

4 horses, daily maintenance 5.00 

1 truck, maintenance 25 

1 motor truck, part of day 2.00 

Superintendence 6.00 

Total $20.75 



After quoting several other instances, ,the author compares the pres- 
ent cost of distribution for the entire city of Rochester with the proposed 
cost of distribution under a model system of distribution : 



TABLE No. 5 



UNDER PRESENT SYSTEM 

356 men,, and in many cases their fam- 
ilies. 

380 horses. 

305 wagons. 

2,509+ miles travel. 

$76,600 invested in milk-room equip- 
ments. 

$108,000 invested in horses and wagons. 

$2,000 present daily cost of distribution. 

$720,000 yearly cost of distribution. 



UNDER MODEL SYSTEM 

90 men. 
50 horses. 

25 horse-drawn trucks. 
300 miles travel. 

$75,000 equipment for sanitary plant. 
$30,750 equipment of horses and trucks. 
$600 estimated daily cost of distribution. 
$220,000 estimated yearly cost of distri- 
bution. 



and comes to the following conclusions : 

"There is little question that if the milk supply of Rochester were to be dis- 
tributed by one agency properly organized and equipped, a saving to consumers of 
at least $500,000 yearly could be effected." 

In order to bring more vividly before the minds of the readers the 
enormous waste of the competitive system of distribution, the author ap- 
pends a series of illustrations showing the number of milk wagons at 
present engaged in distribution in the several districts of the city, and 
makes the following suggestion : 

"The City of Rochester owns its water works, collects its own ashes, operates 
an incinerating plant for the sorting and disposal of garbage and controls the col- 
lection of its garbage. All of these activities bear an important relation to the 
public health, but none the less does milk. Why, therefore, should not cities con- 
trol their own milk supplies to the end that the people may have pure, wholesome 
milk at the same minimum cost?" 

One example of these illustrations is given on the opposite page; 



12 



MILK SURVEY OF THE CITY OF ROCHESTER 



b 



TABLE No. 6 



^0 




MILK SURVEY OF THE CITY OF ROCHESTER 13 

>1915, Detroit, Mich. (U. S. Department of Agriculture, Bulletin 
No. 639. "The Market Milk Business of Detroit, Mich., in 1915," by 
C. E. Clement and C. P. Warbor.) 

The data was collected during the months of September and 
October, 1915. 

The methods of enquiry consisted of an examination of the dealers' 
books and an inspection of the business. 

The subjects covered included : Statistics of the supply, cost of col- 
lection in the country, cost of handling in country stations, investment in 
the country, freight, investment in city plants, investment in delivery 
equipment, average daily sales, cost of handling in city plants, cost of 
delivery labor, cost of delivery expense, loss on surplus. 

This report is most interesting because of numerous tables showing 
the different costs. It points out that previous to the adoption bv the 
City of Detroit of a milk pasteurizing ordinance there were 158 retail 
dealers, and three months after passing of the ordinance there were only 
68 plants in which milk was prepared for distribution. 

The chief recommendations are that country plants be standardized 
in building and equipment, and that there is economy in the sale of milk 
from city stores. 

1916-1917, New York State. (New York State Assembly Commit- 
tee; Senator Chas. W. Wicks, Chairman.) 

This survey occupied a period of about six months under an appro- 
priation of $25,000. 

Methods of enquiry included: Public hearings, at which witnesses 
were examined representing dealers, producers, and consumers; exam- 
ination of dealers' books by expert cost accountants, and of producers' 
accounts. 

Subjects covered included especially the milk supply of New York 
City; the statistics of the supply; investment in the country; freight; 
investment in city plants ; investment in delivery ; average daily sales ; cost 
of handling, labor ; cost of delivery, other expenses ; loss on surplus ; and 
also a study of dairy farm costs, including cost of labor, cost of feed, 
other farm expense ; and prices charged consumers. 

Figures were obtained from all of the larger milk companies in New 
York City, and from many dairy farms. The report shows that the in- 
crease in cow population in New York State has failed to keep pace 
with the increase in human population. 

The Committee concludes that : 

"During a period of several years the dairy farmer, laboring industriously and 
thriftily as he might, was not able to secure such reasonable price from the sale of 
dairy products in this State as to earn a fair labor and invested capital return. 
The Committee is constrained to believe that the average dairyman is as thrifty and 



14 MILK SURVEY OF THE CITY OF ROCHESTER 

efficient in his chosen pursuit as the average man in other walks of Ufe. We doubt 
if there is any group of men in any corresponding industry so well informed as to 
their craft, so keenly interested in its progress, and so eager for success as the 
dairy farmers of the State of New York." 

The Committee's investigations included dairy farms producing milk 
for the City of Rochester, and milk companies distributing milk in the 
City of Rochester. 

The conclusions of this Committee regarding distribution are ex- 
pressed as follows : 

"UNNECESSARY COSTS OF DISTRIBUTION" 

"This business is conducted on an extremely competitive basis. * * * js^ 
. large part of the cost arises from the bitter- competition existing in the distribution 
of the product * * * ^j^ army of solicitors and sales agents are main- 
tained * * * Overhead charges attributable to this work amount to an 
alarming sum * * * It is customary to refer to the fact that four or six 
or ten milk wagons and milk drivers visit the same block * * * but this 
ignores the really greater expense of the silent army of retainers * * * '^o\_ 
only do we find in single blocks these wagons and horses, but on the same block 
six solicitors ; six route superintendents ; six staffs of clerks and bookkeepers. The 
distribution of milk is a public service which, to be put upon an economic basis, 
requires public regulation to the end that all unnecessary services even of a com- 
petitive kind may be eliminated." 

"DISTRIBUTION OF MILK SHOULD BE A REGULATED PUBLIC 

SERVICE" 

"It is safe to assert that the consumers in the City of New York pay several 
millions of dollars annually for the privilege of having all the numerous purveyors 
of this necessity of life engage in attempts to serve him * * * y\ milk supply 
is as much a daily necessity and even more so than gas or electricity." 

"It certainly seems as if the dairymen of this State and the distributers with 
their invested capital, and the consumer, should co-operate to the end that these 
unnecessary competitive wastes be eliminated and the dairymen's milk brought to 
the consumer at the lowest possible expense." 

"The investigations of the Committee lead to the conclusions that under the 
present competitive system it takes almost as many men to bring the dairymen's 
milk to the consumer as there are dairymen engaged in the production of milk with 
all their employees. This is the result of the purely competitive basis upon which 
the business is handled. Three or four milk stations are being maintained with a 
separate force of employees to collect or receive the dairymen's milk at many points 
where one well equipped station with a competent force could do all the collecting 
at one-fifth the present expense. This unnecessary duplication of service follows 
with all its attendant overhead and capital investment from the country milk station 
until the bottle of milk is finally deposited at the consumer's door. A large part of 
this, in the judgment of this Committee, could and should be eliminated. * * * 
The only solution possible is to limit and leave only those in the field which the 
service actually requires. This is just as obvious in the case of milk as it is in gas 
or any other daily necessity supplied in small quantity to the consumer. 

"It is believed by the Committee that a State Department * * * should be 
created to provide ways and means * * * ^o consolidate this service, not only 



MILK SURVEY OF THE CITY OF ROCHESTER 15 



in New York, but in every city of the State, to the end that the expense thereof be 
reduced to a minimum * * * The dairymen of the State, ignoring and dis- 
regarding the law has so organized as to protect his own interests * * * Those 
who contend that these matters had best be regulated by the law of supply and 
demand pay no heed to the evident situation that the law of supply and demand 
has absolutely ceased to operate. 

" THE MILK TRUST " 
"There is no milk trust controlling the purchase and sale of market milk in the 
City of Buffalo. There is none in Rochester ; there is none in Syracuse ; there is 
none in Utica; there is none in Albany; nor in any city between Albany and New 
York, nor in any town or village of the State. There is no milk trust controlling 
the purchase and sale of milk in the City of New York. Instead there is sharp and' 
bitter competition, so far as the records of this Committee discloses, in each and 
every one of the places. There are four stations in many places where one could 
collect the milk. There are four outfits of station managers and employees in 
many places where one could do the work. Ever^^ intelligent person wlio has ever 
discussed the question concedes that there are four horses and wagons, four or five 
or six groups of solicitors ; four or five or six separate organizations and overhead 
charges duplicating work that one of each could well perform. 

"There is too much capital already invested in the business * * * Here, then 
is the waste and the loss * * * Instead of introducing more expensive com- 
petitors in the field to waste more money of the consumer, the State should endeavor 
by judicious legislation, to permit the elimination of all unnecessary investments 
both of labor and capital and effectively control the business operations of the 
remainder." 

1917, Berkeley, Cal. (University of California, College of Agricul- 
ture, Circular No. 175. "Progress Report on the Production and Dis- 
tribution of Milk," by Elwood Mead.) 

The information in this survey w^as obtained during the months of 
June and July, 1917. 

The methods of enquiry consisted in the mailing of questionnaires 
to producers and dealers, and an inspection of the dealers' milk factories 
and of dairy farms. 

The subjects of enquiry included: Statistics of the supply (of the 
cities of San Francisco, Oakland, Berkeley, Alameda, and Richmond) ; 
average daily sales; losses on surplus; dairy farm costs; cost of labor, 
feed, other farm expense; prices paid to farmer; prices charged con- 
sumers. 

The conclusions of this survey are : 

"(1) The distributers service at present is badly organized, and there is in 
many cases a serious waste of labor and money which ought to be corrected; 

(2) Duplication of pasteurizing plants in a needless addition to distribution 
costs." 

Under recommendation the report states : 



16 MILK SURVEY OF THE CITY OF ROCHESTER 

"(1) What is needed is comprehensive and expert public oversight that will 
study the needs of a city as a whole and co-ordinate the work of producers and 
distributers so as to eliminate inefficiency and waste, and insure prices based on 
the value of the services rendered ; 

(2) What is needed in San Francisco Bay cities is the creation of some expert 
authority to study whether the present location of our dairying districts makes 
possible the provision of a milk supply as cheaply as it could be furnished from 
some other district or districts where land is cheaper even if farther removed. 

(3) The economies of distribution should be studied, not to determine in what 
direction the distributers have failed, but what could be saved by a carefully planned 
distributing system which would eliminate duplication of routes, needless pasteur- 
izing plants, and overhead charges." 

1917, New York City. (Report of Mayor's Committee on Milk; 
Dr. Charles E. North, Chairman.) 

Methods of enquiry included : Public hearings of dealers, producers, 
consumers; examination of dealers' books by expert cost accountants; 
examination of dairy farm costs by cost accountants; questionnaires to 
dealers, producers and consumers ; field work by farm inspectors on farm 
costs ; by city inspectors in house to house canvass. 

Subjects of enquiry included: Statistics of New York City supply; 
cost of freight ; dairy farm costs, including the cost of labor, cost of feed, 
other farm expenses ; country hauling ; prices received by the farmer ; 
milk dealers' costs, including investment in the country; investment in 
the city; average daily sales; cost of handling, labor; cost of handling, 
other expenses; cost of delivery, labor; cost of delivery, other expenses; 
loss on surplus. 

The house to house canvass covered 2,200 homes by 250 investiga- 
tors, including a population of 12,439 people, showing the milk consumed 
by children of different ages and by adults. 

This stirvey included studies of the cost of production on dairy 
farms in all the states shipping milk to New York City, and on the city 
end of the line a careful study of the cost of distribution of milk in quart 
bottles from retail wagons, of the sale of bottled milk from grocery stores 
and milk stores, and the sale of wholesale milk in cans. The investigation 
gave much consideration to the food value of milk and received the testi- 
mony of the leading authorities on this subject. The conclusions of this 
survey were : 

"1. Milk is the most valuable and the cheapest of human foods even at present 
prices. 

2. For drinking purposes New York City now uses only about 700,000 quart? 
daily. The city should use about 2,000,000 quarts daily for drinking in an ideal diet. 

3. The cost of milk production at present prices is 7 cents per quart and the 
prices asked by the Dairymen's League are justified. 

4. The cost of distribution as shown by the dealers' accounts is justified and 
not large enough to prevent business losses. 



MILK SURVEY OF THE CITY OF ROCHESTER 17 

5. The cost of production can be reduced by 

(a) eliminating low-producing cows. 

(b) collective hauling of milk. 

(c) collective buying of grain. 

6. The cost of distribution can be reduced by abolishing competition and 
duplication through centralizing the distributing system into a single company or 
public service corporation." 

1917, New England. (Boston Chamber of Commerce. "The Milk 
Question in New England," R. W. Bird, Chairman; Dr. A. C. Gilbert, 
Secretary.) 

The methods of enquiry included an audit of the dealers' books by 
expert cost accountants, and the examination of dairy farm costs by farm 
inspectors. 

The subject of enquiry included: Freight, the cost of handling, the 
cost of labor, and factory cost, loss on surplus, and dairy farm costs, in- 
cluding labor, feed, other farm expense ; country hauling, and a statement 
of prices received by the dairy farmer. 

The Committee's recommendations include: 

"1. That the farmers through their association or community groups establish 
their own delivery system from the farms to the railroad shipping station, and 
wherever possible own their own receiving stations at the railroad. 

2. The question of surplus (milk) is one of the most aggravating causes for 
the high price of milk to the consumer. The farmer should study this condition 
carefully and endeavor to bring his cows to a producing state in a more uniform 
manner than at the present time, because if he does not the loss due to surplus 
must ultimately be borne by those who produce it and not by the consumers as at 
present." 

The recommendations to milk dealers include among the others : 

"That early morning deliveries be discontinued and that all deliveries be made 
by daylight ; 

That all bottles be charged for, and credited when returned; 
The use of a standard blank bottle." 

The Committee confesses its inability to express an opinion on the 
subject of co-operative or centralized milk delivery. 

1917, Pennsylvania, Maryland, Delaware. (Report of the Governor's 
Tri-State Commission ; Bulletin No. 287 ; Pennsylvania State Department 
of Agriculture, Dr. Clyde L. King, Chairman.) 

Methods of enquiry included : Public hearings, at which appeared 
witnesses representing dealers, and consumers ; questionnaires addressed 
to dealers and producers. 

The subjects covered included: Statistics of the milk supply of 
Philadelphia, Pa., Wilmington, Del., and Baltimore, Md. ; the cost of 
handling at country milk stations; freight: delivery charges, labor; de- 



18 MILK SURVEY OF THE CITY OF ROCHESTER 



livery charges, expenses ; and the cost of milk production on dairy farms, 
including labor, feed, other expenses ; and country hauling. 

The report gives consideration to the food value of milk and the sani- 
tary character of milk, and also to the surplus problem. It includes many 
tables and diagrams of great interest to students of this subject. Among 
the most important conclusions and recommendations are the following: 

"On costs of production, the Committee recommends : 

( 1 ) Keeping only high producing cows ; 

(2) Co-operative methods of hauUng milk." 

Under distribution the chief recommendations are that: 
"Milk distributive plants be hereafter regarded as quasi public businesses, and 

subject to governmental regulation; 

The cost per quart for pasteurizing milk, including the investment for plant 

and operating costs, decreases with increase in the size of the plant and in the 

amount of milk handled. 

There are economies in route service certainly up to the point as heavy as one 
vehicle can serve. Herein lies the greatest economy In large scale service. 

There is much saving in overhead charges. 

The public is interested In -the milk distribution business as a public utility not 
only because of the, economies in large scale distribution, but also because competi- 
tion, as in railways and other public utilities, is ruinous If real, and worthless as a 
price protector to farmer and consumer if unreal. 

The price of milk is as vital, certainly, as the charges for common carriers, or 
for electricity, or gas, or street railways. 

The sanitary safety of milk Is certainly as vital as, if not more vital than, the 
sanitary safety of water. 

The price for milk depends largely upon the economies In production and milk 
distribution. Milk Is a food that is absolutely requisite for babies and growing 
children. 

We have given careful consideration to the alternatives to recognizing the 
milk business as a quasi public business. Among these alternatives are : 

(1) Public ownership of pasteurizing plants In order to give equality of eco- 
nomic opportunity to the small dealers ; 

(2) Co-operative retail delivery by dairymen ; 

(3) Public ownership of the milk distributing plants; and 

(4) Farmers' stations within the city for co-operative wholesale milk delivery." 

The subject is summarized by the statement that: 

"The Commission recommends that the milk distribution business be regarded 
as a public utility." 

1917, Canada. (Report of the Milk Committee Appointed by the 
Food Controller for Canada to Investigate Milk Supplies for Urban 
Municipalities; Ottawa; November 24, 1917. P. B. Tustin, Chairman'.) 

Methods of enquiry included public hearings of witnesses represent- 
ing dealers and producers, and questionnaires addressed to dealers and 
producers. 

The preliminary statement by the Food Controller says : 



MILK "survey of THE CITY OF ROCHESTER 19 

"Although any action taken by the Food Controller must necessarily be limited 
to the period o£ the War Measures Act, the Committee's recommendations have in 
view more than temporary relief from the excessive spread between the prices paid 
to the producer and the prices charged to the consumer. The report is being given 
widespread circulation in the hope that thereby a permanent solution may be found 
of the problem of reducing the high cost of distributing milk." 

The subjects of enquiry included: The cost of milk production, 
farm labor, cow feed, and other expenses ; the use of milk in by-products ; 
the food value of milk; the spread in various cities; bottle losses, and 
possible savings. 

The report also contains a statement of the experience of the City 
of Regina, Sask., in consolidating the milk business. 

The conclusions and recommendations of this report are, in brief, as 
follows : 

"(1) That the price of milk paid to producers generally has not been found to 
be exorbitant, taking into consideration all existing circumstances; 

(2) It has been proved successfully that milk and all its products, including 
skim milk, are the cheapest forms of animal foods on the market today, and that 
the price of milk has not increased to the same extent as have the prices of other 
food. 

(3) The producer received for his milk delivered at the city dairy an average 
price of from 6c to 8c per quart, while the retail consumer is paying from 10c to 
13c per quart. This difference, commonly called "the distributers' spread," varies, 
according to the evidence submitted, from 2.75c to 6.50c per quart. 

(4) That this excessive "spread" or difference between the producers' price 
and the consumers' price is caused chiefly by the excessive number of distributers, 
and that it varies in about the same ratio as the number of distributers. 

(5) In Ottawa, where one dairy handles about 75% of the milk, the spread 
is only 3.25c per quart, while in Toronto where there are about 90 distributers it 
is 5.25c." 

The report estimates possible savings as follows : 

Excess dairy costs .25c per quart 

" delivery costs .75 " " 

" bottle loss costs 125 " 

Total 1.125c " " 

and on this basis an annual saving of over $1,500,000.00 could be effected 
in city distribution in Canada. 

The second chapter of the report contains recommendations for the 
reorganization and unification of the business of milk distribution. The 
principal recommendations are as follows: 

"(1) We recommend that the distributers' "spread", or the difference between 
the price paid for milk delivered at the city dairy and the price charged to the 
consumer, be fixed on a basis of reasonable costs of distribution as shown by the 
evidence submitted." 



20 MILK SURVEY OF THE CITY OF ROCHESTER 

Following the suggestion that the Dominion be divided into zones, 
the report states : 

"We recommend that based upon present conditions the following maximum 
spreads be fixed, and ma/Je effective December 1, 1917, subject to reduction when 
conditions warrant : 

British Columbia 5.25c per quart 

Alberta S.25c " " 

Saskatchewan and Manitoba 5.25c " " 

Ontario and Quebec 5.00c " " 

Maritime Provinces 5.00c " " 

In Ottawa, a city of 100,000 population, 75% of the business was shown to be 
in the hands of one distributing firm, which operates on a spread of 3.25c per quart. 
This illustrates the advantages to be obtained by the single unit delivery system. 
* * * 'phg manager of the firm stated that under a single delivery system, he 
could reduce the "spread" to 3c. 

We recommend that where the Provincial Committee decides that economic 
waste could be eliminated or reduced by reorganization, such reorganization should 
be carried out by three competent men as local commissioners, selected by and 
coming under the approval of the proper authorities; one representing producers; 
one representing distributers; one representing consumers. The local commission 
thus constituted should proceed to reorganize and consolidate the milk business." 

The following plan is suggested for the reorganization and consoHdation : 

"1. The most efficient plants and equipment should be selected; 
2. The property comprised in the consolidation should be appraised by two 
valuators, one appointed by the Food Controller, and one appointed by the owner. 

The results of such proposed reorganization would be: 

(1) A reduction in price to consumers; 

(2) One management, one bookkeeping system, reduction in overhead charges, 
release of a large number of men ; 

(3) Saving in charges for supplies in large quantities, including producers' 
supplies ; 

(4) More sanitary quality of milk; 

(5) A great saving in heavy expenditures for the prevention of the spread of 
tuberculosis resulting from the absolute prohibition of the sale of milk from cows 
that have not been tested and found free from tuberculosis, unless it was safe- 
guarded by pasteurization ; 

(6) Infant mortality would be reduced; 

(7) Typhoid and other preventable diseases would be reduced; 

(8) Inspection and control of the milk supply by municipal authorities greatly 
facilitated." 

1919, Neiv York State. (Report submitted to the Legislature of 
New York State at Albany, April 18, 1919, under the title : "Preliminary 
Report of the Council of Farms and Markets of its Investigation of the 
Cost of Production and Distribution of Milk in New York State." W. A. 
Dana, Chairman.) 

Methods of enquiry included: Public hearings of witnesses repre- 
senting producers and dealers; examination of dealers' books by cost 
accountants ; questionnaires addressed to producers and dealers. , 



MILK SURVEY OF THE CITY OF ROCHESTER 21 

The subjects of enquiry included : A study of the milk supply of the 
cities of Glens Falls, Syracuse, Utica, Binghamton, Poughkeepsie, 
Middleton, Watertown, Albany, Olean, Batavia, Lockwood and James- 
town, N. Y. In some cities complete information was obtained. In other 
cities, partial information. 

'Complete records and costs of milk production were secured from 
thirty representative agricultural regions surrounding Syracuse, Canton, 
Middletown, Binghamton, Watertown, Utica, Poughkeepsie; including 
cost of feed, labor, and other dairy costs. 

Statistics of the cost of distribution from 26 distributers in Utica, 
Syracuse, Binghamton, Batavia, Lockport, Watertown, Middletown, 
Jamestown, Poughkeepsie, were obtained, including the cost of operating 
milk plants and milk delivery systems. 

The conclusions and recommendations of this report, briefly, are 
as follows : 

"(1) The Council is firmly of the opinion * * * ^h^t i^j^g producers gen- 
erally have not been making any large profits ; 

(2) That in nearly every city there are too many dealers and that there is a 
large duplication of routes, several wagons serving customers in the same block; 

(3) The problem of surplus has also been an acute one; 

(4) That the overhead on account of an expensive plant and a large amount 
of capital is so great that no company, even though handling practically all o£ the 
milk of the city, could show a large profit with such an overhead; 

(5) That the entire system of distribution in the up-State cities should in some 
way be made more efficient. 

(6) It has been advised that * * * ^j^g cost, of distribution in Philadelphia 
has been reduced to approximately 4.5c ; 

(7) That in the City of Ottawa it has been reduced to about 3.5c; 

(8) The evidence indicates that the spread of about 5c per quart between the 
cost of milk at the city distributing plant and the prices received for retail milk 
would cover the cost of bottling and distribution in these cities under present con- 
ditions. 

1919, Spokane, Wash. (Report presented to the President of the 
Chamber of Commerce by a special Committee called "The Milk Com- 
mittee appointed by the Chamber of Commerce," dated April 25, 1919.) 

Methods of enquiry included: Questionnaires addressed to pro- 
ducers and dealers ; field work, including inspections of the producers' 
and dealers' businesses. 

Subjects of enquiry included : Statistics of the supply of Spokane ; 
losses on surplus milk; per capita consumption; food value of milk; milk 
prices compared with other food; and the cost of production and of 
distribution. 

The conclusions and recommendations include the following: 



22 MILK SURVEY OF THE CITY OF ROCHESTER 

"We conclude 'that the producers as a class are losing money in their dairy 
activities at the present time * * * that they have not as a class been making 
an adequate return for the investment, risk, and work necessary to produce milk, 
and that they are entitled to a better price than they are now receiving if production 
and the dairy industry are properly encouraged ; 

That we find many of the producers unskilled in the proper handling of the 
herd, using cows which have no place in the dairy herd, using unintelligent feeding 
methods, quite a few without any knowledge of cost accounting; 

We conclude that the consumer has not a sufficiently full knowledge of the 
value of milk as a food and its positive necessity especially for the younger genera- 
tions * * * and that the price of milk has been increased less during the war 
period than any other food product. 

We conclude that in the distribution of milk the distributer has made no more 
than a modest profit, and we believe the distributers are not making any unusual 
or improper profit in the spread between the price they pay to the producer and 
the price at which they sell to the consumer. 

We find most of the large distributers with side lines of activity which we 
believe are profitable, such as making ice cream and butter. 

If any relief is to be had, it must be through the concentration of agencies. 

It occurs to us that the overhead cost of maintaining so many agencies is the 
chief contributing cause of the cost to the ultimate consumer. 

It has been suggested that a municipal plant be installed * * * but we be- 
lieve that this would not bring the results hoped for on account of the peculiar 
nature of the business. 

Neither de we believe that any organization by the producers through which 
they will market their milk direct will be successful. 

Some members of your Committee have believed that the situation could be 
met by licensing by the city a monopoly in the hands of private capital * * * 
retaining the power through the city commissioners of audit, and control of prices 
and profits, as well as of methods and expenses. 

Should such a monopoly be desired by the public (which should be consulted 
before any definite plan is adopted) we believe that in justice to all present vested 
interests, those particular distributers who were forced to discontinue should not 
suffer loss, but their properties should be paid for at a sound and solvent price, 
either through the monopoly thus created, or by direct tax, as it would not seem 
fair to confiscate their properties or their business without a reasonable payment. 
* * * If the city reserves the licensing power; the absolute control of all milk 
and of milk products sold in the city; the control of a proper and fair profit which 
the monopoly would be allowed to make; requires frequent reports and also makes 
frequent audits of accounting of such monopoly; we believe the very best results 
could be obtained, for both the producers and the consumers, in economy and in 
qualities. The prices could be changed as conditions changed. 

The monopoly distributer should be allowed to make a stipulated return on his 
investment * * * and the consumer should in such case feel that he was getting 
as much as his money should buy without any unusual or unfair middle-man's profit. 

The objection to this plan which seems fatal is that the public, in our judg- 
ment, would not be willing to allow such a monopolistic distributer a fair profit 
for his investment, energies and efforts, and would attempt to confine him to a rate 
of 7% or, perhaps, 8% on his invested capital, with only modest salaries, and in 
this way would destroy the initiative, as private capital does not ordinarily like to go 
into a hazardous business where the possibilities of profit are so limited. 



MILK SURVEY OF THE CITY OF ROCHESTER 23 

If private capital could be obtained from suflficiently public spirited individuals 
to be and remain indifferent as to profits above a nominal rate, such a plan could 
be worked out." 

1919, Winnipeg, Can. (Report made to the Mayor and Common 
Council of the City of Winnipeg, dated April 8, ,1919, by L. D. Hughes.) 

Methods of enquiry: These were limited to an inspection of the 
dealers' business and accounts. 

The subjects of enquiry included: Statistics of the supply; dealers' 
investment in plant and buildings; cost of handling; cost of delivery; 
average daily sales; loss on surplus; sanitation of dairy farms and milk 
dealers' plants. 

The report recommends that a commission of three members be ap- 
pointed to act as a city milk commission, one member to be elected by the 
producers, one to be elected by the Winnipeg Trades and Labor Council, 
and one elected by the Greater Winnipeg Board of Trade. In addition, 
one member of the City Council, and one member of the City Health 
Department should be appointed ex-officio members, and attend all meet- 
ings of the commission. The duties of the commission would be to ap- 
point a manager for the municipal milk plant, and to set the price of milk 
paid to the producer and the price paid by the consumers from time to 
time. 

The summary and conclusions of the report include the following: 

"In my opinion the only v/ay in which the City of Winnipeg can enter into 
the retail milk business in a manner satisfactory to the city, the producers, and 
consumers of milk, is to obtain a monopoly of the business within the limits of 
the City of Winnipeg. 

"I would therefore recommend that the City of Winnipeg purchase the milk 
businesses of the existing companies. 

"The following out of this plan would enable the city to erect the most modern 
type of building on the continent. The annual saving effected by following the 
above plan would be $230,348.00." 

The report then discusses the suitability of existing plants, and pre- 
sents figures showing the capital invested by two of the largest companies, 
and a tabulation showing present costs of distribution, and annual savings 
to be effected by the monopoly, and also the estimated cost of building and 
equipping a new mtmicipal milk plant. It concludes as follows : 

" * * * the milk consumers will be able to obtain pure milk at the lowest 
possible price. 

Infant mortality would be reduced. Tuberculosis, typhoid, infant diarrhoea, 
and other communicable diseases * * .* would be reduced to a minimum. 

The impetus given the dairy business as a result of the producers having a 
voice in the setting of prices * * * would build up a prosperous dairy com- 
munity surrounding the city. 



24 MILK SURVEY OF THE CITY OF ROCHESTER 

Inspection by officers of the department of health would be greatly facilitated, 
as all milk coming to one plant before being retailed to consumers could be thor- 
oughly inspected." 

1919, New York City. ("A Study of the New York City Milk 
Problem," published by the National Civic Federation, by I. G. Jennings.) 

Methods of enquiry: Questionnaires to dealers. 

Subjects of enquiry: Prosecution of milk dealers by New York City 
Department of Health ; inefficiencies of production ; profitable and non- 
profitable cows ; volume of milk produced on dairy farms ; inefficiencies 
in the delivery of milk; country hauling; city retail delivery; sanitary 
control ; bacterial tests ; payment of premiums to the producer ; country 
laboratories ; regulation by state comniiissions ; legal status of a state com- 
mission; public ownership of the milk industry. 

This report suggests the appointment of a state commission and 
municipal ownership of the milk business, and submits evidence indicating 
that a state commission could be appointed under the police powers of the 
state with such legal powers as would permit the licensing and regulation 
of the milk industry, and the fixing of prices ; and that municipal owner- 
ship also could be made legal under the state constitution. The greater 
part of the report is devoted to a detailed discussion of legality of a state 
milk commission and of municipal ownership. The author quotes authori- 
ties and precedents and apparently establishes satisfactory legal authority 
for the institutions mentioned. 

1919, New York State. In a report published August 25, 1919, en- 
titled, "Preliminary Statement of the Commissioners appointed by 
Governor Smith to report to him in the matter of the High Cost of 
Living," signed by Martin H. Glynn, late Governor of the State of New 
York, and Dr. John H. Finley, Commissioner of Education, being special 
commissioners appointed by the Governor, the Commissioners devote the 
main body of the report to the milk problem. 

They point out the numerous investigations which have been made, 
and say: 

"Despite all these investigations, the price of milk has rapidly risen since 1916, 
and from present indications it is likely to go still higher during the coming 
winter." 

The report calls attention to the variation in prices in different cities, 
although the prices paid to the producers are approximately the same, and 
especially that the price of milk in Philadelphia is 2 cents a quart cheaper 
than in New York City. 

Regarding the importance of milk to the community, the Commis- 
sioners say: 



MILK SURVEY OF THE CITY OF ROCHESTER 25 

"If milk were a mere commodity without which human beings might live in 
health and vigor, the State of course would have little concern in this transac- 
tions, but since in every community there are many persons, especially children, 
mothers, and invalids, for whom it is as much a necessity of life as a supply of 
pure water, the State has not only a rightful reason for enquiry as to whether 
there are exorbitant profits in its sale, but a compelling reason for interfering if 
there are." 

Their recommendations include the following : 

"We further recommend that you require all district attorneys of the State 
of New York, as you' have already required the district attorney of New York 
County, to give immediate and most diligent attention to any violation of existing 
laws within their respective districts." 

"We are disposed to put the emphasis for the present on bringing about such 
open co-operation between dealers and consumers as will insure a fair price. To 
that end we recommend, therefore, that you cause to be appointed first of all in 
New York City a fair milk price committee consisting of nine members : The 
State Commissioner of Health, the New York City Commissioner of Health, the 
New York City Commissioner of Markets, three members to be named by the 
Governor of the State, three members to be named by the Mayor of the City of 
New York. We further recommend that you follow this plan in the formation of 
the milk committees in other cities of the State, upon the request of the local 
officials. 

"If this plan should, however, be found ineffective in securing fair prices, we 
would then be prepared to recommend * * * jj^g following as the nucleus of a 
tentative legislative program for placing the distribution of milk on a public utility 
basis. 

"1. That there be created a State Milk Commission to regulate the milk dis- 
tribution business in cities of the first and second class. 

2. That all milk distributers in cities of the first and second class be required 
to secure a license from the proposed Commission, and such Commission be author- 
ized to refuse a license to any distributer who can not establish proof that the 
business he proposes to conduct is of public interest. 

3. That the proposed Commission be given full power to regulate the rates 
which shall be charged on milk for the service rendered by the distributing agencies, 
and to limit the profits of such agencies to what it may deem to be a fair and rea- 
sonable return on the investment. 

4. That the proposed Commission be given full authority to require the in- 
stallation of uniform cost accounting systems by all distributing agencies in first 
and second class cities, and to inspect and audit such accounts at any time. 

5. That the Commission aid and assist all municipalities desiring to establish 
municipally owned distribution of milk and act as an advisory board and be in 
position to recommend the most effective method to be used in establishing muni- 
cipal distribution of milk, including the acquisition of privately owned distributing 
systems. 

6. That all the muncipalities of the State be authorized to acquire and operate 
milk distributing systems within their boundaries when such acquisition and opera- 
tion are approved by this Commission. 

7. That the proposed Commission promote co-operation between the produc- 
ing and distributing elements of the milk industry; that it make from time to time 
investigation of the cost of producing milk, and publish for the information of the 



26 MILK SURVEY OF THE CITY OF ROCHESTER 

public data as to volume and cost of production in this State ; that it conduct educa- 
tional campaigns for promoting the wider use of milk as a food and co-operate 
with municipal health departments and other agencies in making special studies of 
the needs for the greater use of milk in the feeding of children. 

8. That the Commission make special study of the problem of providing milk 
at a minimum cost to the children of the poorer sections of the larger cities, and 
co-operate with the municipal departments of health in providing milk for the 
feeding of infants at the lowest possible cost. 

9. That the Commission co-operate with the New York City Department of 
Health to make a special study of the conditions under which loose milk is sold in 
the city, and endeavor to eliminate all possible danger of contamination of milk 
sold in this manner. 

10. That the proposed Commission be empowered to revoke a dealer's license 
for due cause after public hearing and after due notice in writing. 

11. That any municipality in addition to cities of the first and second class 
may by formal action of the governing body of the municipality place themselves 
under the jurisdiction of this Commission." 

1919, New York State. The Reconstruction Commission of the State 
of New York was appointed by Governor Alfred E. Smith on January 21, 
1919. It consists of thirty-six members, representing all of the large 
cities of the State of New York ; these are divided into two general com- 
mittees, and nine special committees deahng with the various public prob- 
lems and readjustments following war conditions. 

Among these is a Committee on Food Production and Distribution, 
consisting of ten members, of which Mr. Thomas V. Patterson of New 
York City is chairman. This Committee haye given much study to the 
milk problem, and drawn up a draft of recommendations to the Governor 
for state legislation, which is as follows: 

"1. That the distribution of milk be considered a public utility to be controlled 
and regulated as such. 

2. That legislation be enacted authorizing the formation of trade associations 
and consolidation of food businesses, subject to public control as our other public 
utilities of the State. 

3. That all dealers in cities of the first and second class be required to secure 
a license and that the regulating authority be authorized to refuse a license to a 
dealer who cannot establish proof that the business he proposes is to be conducted 
in the public interest. 

4. That the regulating authority have the power after a public hearing and 
proper notice in writing to revoke a dealer's license for due cause. 

5. That the provisions of the law at present relating to licensing in this in- 
dustry be amended to avoid conflict. 

6. That the regulating authority be given full power to regulate the rates 
which shall be charged in the sale of milk for the service rendered by the distribut- 
ing agencies and to limit the profits of such agencies to what it may deem to be a 
fair and reasonable net retvirn on the investment. 

7. That the regulating authority be empowered to regulate the methods of 
handling all milk and that it be its duty to recommend whatever measures are 
necessary to accomplish economies, mechanical or otherwise. 



MILK SURVEY OF THE CITY OF ROCHESTER 27 

8. That municipalities be authorized to acquire and operate milk distributing 
systems within their boundaries when such operation is approved by the regulating 
authority. 

9. That the regulating authority be empowered to apportion territory for dis- 
tribution among competing companies when such apportionment would result in 
greater economy. 

10. That municipalities other than those of the first and second class may, by 
formal action of the governing body of the municipality, place themselves under 
the jurisdiction of the regulating authority. 

11. That the regulating authority maintain offices in each of the cities under 
its jurisdiction in order to carry out its functions effectively." 

PLAN AND SCOPE OF THE ROCHESTER SURVEY 
Methods of Enquiry. 

These methods induded the following: 

(1) Public Hearings. 

Public hearings of viatnesses representing milk producers, milk con- 
sumers, and the investigators employed by the survey. (Twenty-two 
hearings in all were held, covering the period from July 8th to December 
1st.) The stenographer's notes and exhibits were used as material in 
preparing this report. 

(2) Examination of Books of Dealers. 

(The accounts of five of the largest dealers and 15 of the small 
dealers were examined by the expert cost accountants employed by the 
survey. Accounts of only four of the large dealers were sufficiently ac- 
curate to justify detailed tabulation. All of the others were so incom- 
plete that they could be 'used only as a basis of estimate.) 

(3) Questionnaires. 

Questionnaires were sent to the following : 

(a) To milk dealers on hauling and freight. 

(b) To milk dealers on the volume of milk purchased and sold. 

(c) To milk dealers on valuation of properties. 

(d) To milk producers on country hauling. 

(e) To milk dealers of all large cities in the United States and Canada on 
spreads, as well as prices and quantity of milk pasteurized. 

(f) To health officers of all large cities for milk statistics and milk regulations. 

(g) To health officers of all cities in New York State on prevalence of human 
tuberculosis. 

(h) To institutions in Rochester on milk purchased and milk used. 

(4) Field Work. 

(a) Inspection of milk dealer's business; volume of business transacted; 
volume of work for each operation; number of men employed; number of hours 
of labor. 



28 MILK SURVEY OF THE CITY OF ROCHESTER 

(b) Inspection of dairy farms to determine farm costs; personal interviews 
with producers with notes on annual costs of production. 

(c) Sanitary inspection of dealers' milk plants in city. 

(d) Sanitary inspection of dairy farms in the country. 

(e) House to house canvass in the city to determine quantity of milk used, 
and uses of milk by consumers. 

(f) Weighing and measuring of school children to determine under- 
nourishment. 

(g) Inspection of costs of distribution in the City of Ottawa, Canada, 
(h) Inspection of the costs of distribution in the City of Philadelphia, 
(i) Inspection of costs of distribution in the City of Baltimore. 

(j) Inspection of operation of Price Fixing Commission in the City of Detroit. 

(5) Special Studies. 

(a) Work performed by previous milk surveys and by milk commissions. 

(b) Work performed bj'^ the Rochester Health Department and of Rochester 
milk regulations compared with milk regulations of other cities. 

(c) Infant milk depots. 

(d) Undernourishment in school children, and dispensing of milk, and school 
lunches. 



II 

SUBJECTS OF ENQUIRY 
The subjects of enquiry in their order are as follows: 

1. General Introduction. 

(a) Resolution by Common Council of April 22, 1919, authorizing the 
milk survey. 

(b) A survey of previous milk surveys ; their organization, scope, recom- 
mendations, and results. 

(c) Plan of present milk survey, its organization and scope. 

2. Statistics of the Rochester milk supply. 

(a) Producers. 

(b) Dealers. 

(c) Milk sales. 

3. House to house canvass to determine milk used by consumers. 

4. Weight and height of school children to determine percentage and 
degree of undernourishment. 

5. Milk supply of institutions to determine per capita consumption. 

6. Food value of milk for children and adults ; commercial value and 
public health value compared with other foods. 

7. Relation of milk to infant mortality. 

8. Cost of producing Rochester milk. 

(a) Inspection of Rochester farms. 

(b) Cost accounts for total supply. 

(c) " " " small producing cows. 

(d) " " " large producing cows. 

(e) "■ " " small herds. 

(f) " " " large herds. 

(g) " " " producers in dififerent sections. 

9. Cost of hauling and freight. 

(a) Country hauling by farmers. 

(b) Freight to Rochester; by truck or wagon; by trolley; by railroad. 

(c) Trucking in Rochester to milk plants. 

10. Cost of distribution. 

(a) Report on dealers' cost accounts from books. 

(b) Labor costs obtained by inspectors of plantV 

(c) Plant charges obtained by inspectors. 

(d) Costs for large dealers. 

(e) Costs for small dealers. 

(f) Total cost for the city. 

11. Appraisal of investment by Rochester milk dealers. 

(a) In land. 

(b) In buildings. , 

(c) In machinery. 

(d) In delivery equipment. 



30 MILK SURVEY OF THE CITY OF ROCHESTER 



12. Control of milk supply by Rochester Health Department. 

(a) Reports of work performed by Department of Health for ten years. 

(b) Rochester milk regulations. 

(c) Milk regulations of other cities compared with regulations of 

Rochester. 

(d) Tuberculosis. 

13. Sanitary condition of Rochester milk supply. 

(a) Report of sanitary inspection of dairy farms. 

(b) " " " " milk dealers' city plants. 

(c) " " " " milk stores. 

(d) Report of bacterial tests on Rochester milk supply. 

14. Pasteurization. 

(a) The adoption of pasteurization in the United States and elsewhere. 

(b) Attitude of authorities towards pasteurization. 

(c) Necessity for pasteurization in Rochester. 

ORGANIZATION OF THE WORKING FORCE 

Committee on Public Safety of the Common Council. 

Director of public hearings. 

Director of the survey. 

Supervisor of dairy farms inspection. 

Four dairy farm inspectors. ' 

Supervisor of inspection of city milk plants. 

Four city milk inspectors. 

Certified accountant on dealers' cost accounts. 

Three assistant cost accountants. 

Supervisor of house to house canvass. 

One hundred and fifty volunteer workers on house to house canvass. 

Supervisor of weighing and measuring school children. 

Twelve public health nurses. 

Bacteriologist. 

Supervisor of statistical tabulations. 

Two assistant statisticians. 

One secretary and six stenographers and clerks. 



in 

STATISTICS OF THE ROCHESTER MILK SUPPLY 
Information as to the number of persons engaged in the different 
branches of the milk industry of Rochester, the volume of business which 
is transacted daily, and other general facts regarding the business were 
obtained from a number of sources. 

The list of milk dealers was obtained from the Department of Health, 
and also the number of dairy farms. From the dealers themselves figures 
were obtained as to the number of quarts of milk received daily, and the 
number of quarts sold through different channels of trade. The numbers 
of employees, horses and wagons, were obtained by personal inspection 
of the factories by inspectors in the employ of the survey. According 
to the records of the Health Department, there are 745 dairy farms sup- 
plying the City of Rochester. From the dealers' own statements as to 
the number of producers from whom they purchase milk, the inspectors 
obtained the figure 779. The information obtained from these sources is 
shown in Table No. 7. 

TABLE NO. 7 

STATISTICS OF ROCHESTER MILK SUPPLY 

Total number of dealers 136 

Quarts received daily 82,075 

Total daily sales 77,579 

Daily sales — Bottled milk retail 57,305 Quarts 

" —Bottled milk wholesale 11,386 " 

" —Can milk wholesale 8,888 " 

Milk received by motor truck 24,985 " 

" wagon 3,018 " 

" railroad 48,163 " 

" trolley 5,909 " 

Number of proprietors 137 

Number of employees . , 299 

Number of wagons 207 

Number of automobiles 71 

Number of horses 228 

Number of dairy farmers 779 

Quarts of pasteurized milk 44,110 

Per cent, of pasteurized milk 57% 

Number of dealers handling 500 quarts or less 101 

Per cent, of supply handled by them 34.2% 

Number of dealers handling 500 to 1,000 quarts 23 

Per cent, of supply handled by them 19.2% 

Number of dealers handling 1,000 quarts or more 11 

Per cent, of supply handled by them 46.7% 

Number of pasteurizing plants _ 24 

Number of dealers producing own milk 16 

The dealers furnishing milk for Rochester may be divided into three 
groups, according to the quantity of milk sold by them ; the first group 
containing dealers selling less than 500 quarts daily ; the second group of 



32 



MILK SURVEY OF THE CITY OF ROCHESTER 



dealers selling from 501 to 1,000 quarts daily; and the third group of 
dealers selling over 1,000 quarts daily. The number of dealers in each 
group of those selling raw milk and pasteurized milk, and the quantity of 
raw and pasteurized milk sold by them is shown in Table No. 8. 

TABLE No. 8 
RAW MILK AND PASTEURIZED MILK 





«^ 






^ 






^ 






^ 




tl'rt 






^ 


«+H >. 




■^ 


>> 




i 




O U 






-a 


0.-75 




tj 


a 




T3 








^ 


<u 




^ 


w 


n-i o, 


"ti^ 


<+-! U 


a 














N 

MH ■r' 
o 5 


O 3 

(§3 






1 


C <Ll 


go 


J^ 03 


-S "3 


rt 3 


rt ^ 


ri t^ 


o 


rt 


rt 


o 


§f^ 


Sc^ 


^:i^ 


i^a 


gcsj 


3^ 




!r.c^ 


^Oh 


O 


^ 


^ 


Q 


Q 


r-" 


a 


a 


CU 


Cl, 


Oh 


1 Less than 500... 


102 


96 


6 27,416 


25,600 


1,816 


35.3 


76.6 


4.1 


2 500-1,000 


23 


12 


11 15,175 


6,745 


8,430 


19.6 


20.2 


19.1 


3 1 Over 1,000 


11 


1 


10 34,988 


1,084 


33,914 


45.1 


3.2 


76.8 




136 


109 


27 77,579 


33,429 


44,160 


100.0 


100.0 


100.0 



In the above table, one of the dealers in group No. 1 sells both rav/ 
and pasteurized milk, and two of the dealers do not own pasteurizers, but 
hire their milk pasteurized by others, therefore, while there are 27 dealers 
selling pasteurized milk, there are only 25 pasteurizing machines in opera- 
tion. It is noteworthy that out of 33,429 quarts of raw milk sold in the 
city, 25,600 quarts are sold by the dealers in group No. 1, who sell less 
than 500 quarts each daily. These 102 small dealers sell 76.6% of all the 
raw milk sold. Contrasted with this, the 11 dealers selling over 1,000 
quarts each sell only 1,084 quarts of raw milk in all, or 3.2% of the raw 
milk sold. 

On the other hand a study of the quantity of pasteurized milk sold 
daily shows that out of 44,160 quarts, the small dealers in group No. 1 
sell only 1,816 quarts, or 4.1%, while the large dealers in group No. 3 
sell 33,914 quarts of pasteurized milk, or 76.8%. The dealers in group 
No. 2 selling between 500 and 1,000 quarts are more evenly divided in 
their sales of raw and pasteurized milk, selling 6,745 quarts of raw milk, 
and 8,430 quarts of pasteurized milk daily. 



FAMILY QUESTIONNAIRE AND HOUSE TO HOUSE 

CANVASS 

As one means for determining the use of milk by milk consumers in 
the City of Rochester, arrangements were made for an inquiry by house 
to house visitation of a sufficient number of families to give a fair index 
of the uses of milk in the home. 



MILK SURVEY OF THE CITY OF ROCHESTER 33 

Mrs. Helen Probst Abbott, President of the Women's City Club, 
kindly volunteered to organize the members of a large number of the 
women's organizations of the City of Rochester, with the object of secur- 
ing the services of voluntary workers who would carry out the details of 
this inquiry. In accordance with this plan, the members of the following 
organizations were invited to meet at the University of Rochester: 

Women's City Club 

Industrial Nurses 

Council Jewish Women 

Sisterhood Berith Kodesh 

Public Health Nurses' Association 

Tuberculosis Society of Monroe County 

Door of Hope 

United Jewish Charities 

Business Women's Club 

Women's Union 

Syracuse Alumni Association 

Home Service — Red Cross 

Social Workers' Club 

W. C. T. U. 

Temple Beth El Club 

Lake Avenue Baptist Women's Society 

Scottish Women's Club 

Theosophical Society , 

Osteopathic Society 

Nineteenth Ward Civic Club 

J. Y. M. A. Auxiliary 

Social Welfare League 

Women's Alliance, Unitarian Chapter 

College Women's Club 

Principals' and Superintendents' Club 

Sisterhood of Beth El 

Two such meetings were held and as a result over 150 volunteer 
workers were organized. Dr. John H. Murlin, Professor of Vital Eco- 
nomics in the University of Rochester, kindly volunteered to act as super- 
visor of the investigation. He prepared a form of questionnaire which 
was printed for the use of the investigators and gave personal instructions 
to each investigator as to its use. 

The geography of the City of Rochester and the distribution of its 
population was very carefully gone over and the city was divided into 
districts to which a sufficient number of investigators were assigned, to 
include in the investigation a proper representation of every part of the 
city and of every class of inhabitants. 

The report blanks, as fast as they were completed, were delivered to 
the office of Dr. Murlin, and with the assistance of the office staff of the 



34 MILK SURVEY OF THE CITY OF ROCHESTER 

Survey, a complete tabulation was made. The summary of the statistics 
compiled was as follows : 

Number of families visited 1,330 

Total number of persons in families 7,122 

Children under 1 year 242 or 3.398% 

1 to 6 years 1,614 or 22.662% 

7 to 16 years 1,722 or 24.179% 

Total number of children 3,578 or 50.239% 

Adults over 16 years 3,544 or 49.751% 

One of the most important questions in the inquiry was as to the 
total family income per week, and the total money spent for food and for 
milk. The following figures were obtained from this part of the inquiry : 

INCOME PER WEEK (1,095 Families) 

Family income (except from boarders and roomers) $31,522.28 

Income from boarders and roomers 1,414.25 



Total income $32,936.53 

Amount spent weekly for food, including milk (998 families) $14,486.76 
Amount spent weekly for milk (1,330 families) 1,801.71 

The quantity of milk and dairy products used daily is shown in 

Table No. 9. 

TABLE No. 9 

MILK USED DAILY 

Bottled milk (28 quarts donated) 1,838 quarts 

Loose milk 12> quarts 

AMOUNTS AND COST OF OTHER DAIRY PRODUCTS USED WEEKLY 

Amount Price Cost 

Buttermilk 140 quarts $ .090 $ 12.59 

Skimmed milk 524.5 quarts .051 26.51 

Condensed milk 1,197.75 cans .149 178.10 

*Cream 192 quarts .614 116.61 

Butter 2,224 pounds 

Number of families reporting butter 1,057 

Number of families reporting oleo 59 



*2 quarts donated. 

MILK USED DAILY FOR DRINKING 

By children 692 quarts 

By adults 128 quarts 

Unclassified 240 quarts 

(Unclassified milk distributed by income groups added to milk 
used daily for drinking.) 

Total by children 882 quarts 

Total by adults 178 quarts 

FAMILIES USING NO MILK 

Number of families 88 

Number of adults 208 



MILK SURVEY OF THE CITY OF ROCHESTER 



35 



CHILDREN IN FAMILIES USING NO MILK 



Number o£ children under 1 year. 
Number of children 1 to 6 years. . 
Number of children 7 to 16 years. 



19 
110 

145 



One question in the inquiry referred to the race to which the famiUes 
belonged. In determining the race, American born parents were put down 
as Americans, while foreign born, parents were put down as belonging 
to the race from which they came. The results of this question are shown 
in the following tabulation : 



NUMBER OF FAMILIES— 1330 



American 691 

Italian 243 

German 100 

Jewish 56 

Canadian 43 

Russian 45 

Irish 33 

English 26 

Polish 25 

Holland 17 

Scotch 10 



Austro-Hungarian 

French 

Greek 

Swiss 

Belgian , 

Danish , 

Colored , 

Roumanian 

Swedish 

Assyrian 

Not reported 



10 
8 
1 
2 
1 
3 
2 
3 
1 
1 
9 



A study of the results of this inquiry presents a number of features 
worthy of special notice. The real object of the study was to ascertain 
whether the family income bore any relation to the amount of milk used 
and to the milk consumed by children. As a first step toward determining 
this, it is desirable to note the relation of the income to the number of 
persons in the family — especially to the number of children in the family. 
The figures in the tabulation accordingly were sorted with this object in 
view and the results are shown in Table No. 10. 



TABLE No. 10 

SUMMARY OF FAMILY QUESTIONNAIRE 

Relation of Income to Number of Persons 





J 

S"-H 

3 O 


Per Cent, of 
Total Families 
Reporting Inc. 


Number 


of Persons Per 


Family 






Children. 


< 




Income 
Per Week. 




o 


vO 

_o 


13 


c 
o 

t« 
;-. 
<u 

O 


Under 20 


174 
2Z1 
236 
218 
144 
86 
235 


15.9% 
21.6% 
21.6% 
19.9% 
13.1% 
7.9% 


.25 
.24 
.18 
.17 
.18 
.14 
.11 


1.46 

1.49 

1.42 

1.19 

.99 

.91 

.81 


1.51 
1.44 
1.47 
1.49 
1.15 
1.12 
.78 


322 
3.17 
3.07 
2.85 
2.33 
2.16 
1.70 


2.18 
2.32 
2.52 
2.92 
2.93 
3.38 
2.84 


5.41 
5.50 
5.59 

5.77 
5.26 
5.55 
4.54 


20 to 24 


25 to 29 


30 to 39 


40 to 49 


50 and over 

Income not given. . 



36 



MILK SURVEY OF THE CITY OF ROCHESTER 



A consideration of Table No. 10 shows that the famiUes having in- 
comes under $20.00 per week contain the largest number of children and 
that as the income increases progressively, the number of children per 
family decreases progressively, so that while families with incomes under 
$20.00 per week had an average of 3.22 children, that families with in- 
comes of $50.00 and over per week, had an average of only 2.16. The 
number of adults in these families was smallest in the families of small 
incomes and largest in the families of large incomes. 

One factor which must not be overlooked in considering the meaning 
of these figures is that families with young children are, as a rule, families 
having young parents, and therefore smaller earning power. On the 
other hand, families of larger incomes are likely to be families having 
older parents and therefore older children increasing the number of 
adults. These circumstances would explain to some extent the meaning 
of these figures. There remains however, a most important fact in con- 
sidering the necessity for furnishing a sufficient amount of milk for the 
nourishment of small children that the larger number of small children 
live in families having small incomes. 

It appears that the incomes of some families must be expended to a 
large extent for food and the amount spent for milk must depend not 
only upon the size of the income, but on the intelligence with which the 
persons charged with the responsibility of buying the food decide what 
portion of the income should be spent for food and what portion should 
be spent for milk. An effort was made to learn whether families with 
large incomes buy a larger proportion of milk than they do of other foods. 
The figures have been tabulated in a manner that exhibits the facts re- 
specting this information in Table No. 11. 

TABLE No. 11 

SUMMARY OF FAMILY QUESTIONNAIRE 

Relation of Income to Food Expense and Milk Expense 



Income Per Week. 




o 
o 


03 O 












fe 1- 








n ii 




C u 


u 


o 








oj o 




<U O 


«+-< O 


^^ 








CL|M-i 




a>+H 


Omh 


o 






o ^ 


CO ., 




CO . 




. <u 










+J <u 










bo 




c^ 


gs 


C'oj 


SS 




a. 


a 


•? § 


^ QJ 


o 8 


5 <i^ 


u 8 


u g- 


3 

o 


> 




IS 


fc^ 




^^ 


X 


O 


< 


^ 


< 


Ph 


< 


Ph 


Cl, 


Under 20 


$16.17 


174 


$10.38 


64.2% 


$ .90 


5.6% 


8.7% 


20 to 24 


21.58 
26.48 


237 
236 


12.81 
14.43 


59.4% 

54.5% 


1.12 
1.36 


5.2% 
5.1% 


8.7% 


25 to 29 


9.4% 


30 to 39 


32.77 


218 


15.62 


47.7% 


1.46 


4.5% 


9.3% 


40 to 49 


47.18 


144 


15.59 


33.0% 


1.47 


3.1% 


9.4% 


50 and over 


56.08 


86 


19.97 


35.6% 


1.87 


3.3% 


9.4% 


Income not given.. 




235 


16.79 




1.57 




9.4% 



MILK SURVEY OF THE CITY OF ROCHESTER 



37 



Figures in Table No. 11 show that the famiUes with smaller incomes 
spent a larger percentage of the income for food than the families with 
larger incomes, and that families with small incomes also spent a larger 
percentage of their incomes for milk than families with larger incomes. 
The percentage of the total food expense spent for milk does not show 
so great a difference. Families with incomes under $20.00 seem to spend 
a slightly smaller amount of their food money for milk than families with 
incomes above $20.00. The figures in the last column show this. 

The relation of the quantity of milk to the number of children in a 
family is the most important item in this special inquiry. The total num- 
ber of quarts used per day in each of the income groups and the quarts 
used by children, are given in Table No. 12. 

TABLE No. 12 

SUMMARY OF FAMILY QUESTIONNAIRE 

Relation of Income to Amount of Milk Used 







^ 




bo 


MH 






.TS bJ3 




C 


O 


Per Week. 


rts of 
Used 
Day. 


of M 

Child 

Day 

rinkin 


2u 




itage 
uired 
unt o: 
Used 


Income 


3 —. (L) 


i^P^ 


a ;- 


u-^o 


"li- 




Oi^^pH 


rtP^f^ u 




-'i'' 


P <'^ 






a "^ 






Ph 


Under 20 


L03 


1 .19 


.19 


17.8% 


31% , 


20 to 24 


L22 


1 .20 


.22 


8.4% 


28% 


25 to 29 


1.51 


.24 


.27 


4.2% 


48% 


30 to 39 


1.54 


.26 


.27 


5.0% 


50% 


40 to 49 


1.48 


1 -24 


.28 


2.9% 


54% 


SO and over .... 


1.87 


.39 


.34 


2.4% 


69% 


Income not given 


1.60 


.32 


.35 


4.2% 


71% 



*The amount of milk required was calculated from the standard of the Associa- 
tion for Improving the Condition of the Poor, New^ York City. The standard is 
as follows : 

Children under 6 years One quart 

Children 6 to 16 years One-half quart 

Adults One-third quart 

NOTE: Of the 1,330 families, 88 or 6.6% used no milk. 

These families include 5.9% of the total number of adults and 7.7% 
of the total number of children. 

The most interesting feature of the figures in Table No. 12 is shown 
in column No. 3, where it appears that in families with incomes of less 
than $20.00 per week, the children receive only .19 quarts of milk per 
day for drinking, while in families with larger incomes there is a prog- 
ressive increase in the quantity of milk fed to children and in families 
having incomes of $50.00 a week and more, the children receive .39 quarts 
pf milk daily, or just twice the quantity of milk, received by children in 
the families first mentioned. If we compare the amount of milk fed to 



38 MILK SURVEY OF THE CITY OF ROCHESTER 

the children in the famiHes of each of the income groups, with the amount 
of milk recommended for children by some of the leading food experts, 
we find that the children in group No. 1, or families with incomes under 
$20.00, were receiving only 31% of their requirement. These percentages 
are shown in the last column of Table No. 12. 

It appears also that there is a progressive increase in the percentage 
of milk received in each income group, until in families where the weekly 
income is $50.00, or over, the children are receiving 69% of their milk 
requirements. 

The conclusion which must be reached from these data is that in all 
of the families visited the children are receiving less than their milk re- 
quirements and that the income of the family has a most close relationship 
to the quantity of milk purchased and the quantity used by children. The 
children, especially in the families with small incomes, are not receiving 
the milk necessary for their growth and development. 
,j One of the methods of testing the accuracy of the work performed 
in this inquiry, is to compare the amount of milk used by the entire list 
of families with the amount used by the City of Rochester during the 
same period at the time the inquiry was conducted as follows : 

Total population of families visited 7,122 

Estimated population of the City of Rochester 290,000 

Percentage of total population in the families visited. . 2.456% 

Total amount of milk used by these families 1,911 Qts. Daily 

The total milk sold daily in Rochester 77,580 Qts. 

Percentage of the Rochester milk supply used by fam- 
ilies visited 2.463% 

Therefore the percentage of the total population visited in this in- 
quiry corresponds very closely with the percentage of the total milk supply 
used. 

These figures justify the belief that the families visited fairly repre- 
sent the character of the population of Rochester, both in the different 
age groups and the quantity of milk which is used by them. On this 
assumption, using the figures obtained in this inquiry as a basis, the milk 
consumption of the entire City of Rochester for the entire population is 
presented in Table No. 14. 

TABLE No. 13 
FIGURES FROM 1330 FAMILIES 

For Other Should 

Drinking. Uses. Total Use. 

Population. Quarts. Quarts. Quarts. Quarts. 

Children— 1 to 16 years... 3,578 882 428 1,310 2,717 

Adults— over 16 years 3,554 178 423 601 1,181 

Total 7,112 1,060 851 1,911 3,898 



MILK SURVEY OF THE CITY OF ROCHESTER 39 

TABLE No. 14 

ESTIMATED AMOUNT OF MILK USED BY CHILDREN AND ADULTS 
OF ROCHESTER COMPARED WITH QUANTITY RECOM- 
MENDED BY FOOD AUTHORITIES 

For Other Should 

Drinking. Uses. Total Use. 

Population. Quarts. Quarts. Quarts. Quarts. 

Children— 1 to 16 years... 145,693 35,768 17,358 53,126 110,633 

Adults— over 16 years 144,307 7,218 17,156 24,374 48,102 

Total 290,000 42,986 34,514 77,500 158,735 

The distribution of the families in the city districts visited was pur- 
posely arranged so as to give so far as possible a cross-section of the 
entire population of the City of Rochester. The fact that the population 
of the families visited gave almost the same percentage of the total popula- 
tion as the quantity of milk consumed to the total milk supply of the city 
is a substantial reason for believing that the families visited did represent 
fairly a cross-section of the city. On this basis the age distribution of 
the children and adults in the families visited if applied to the entire 
city would indicate that the population of the entire ctiy of Rochester 
is divided as follows : 

Children under 1 year 9,854 

Children 1 to 6 years 65,720 

Children 7 to 16 years 70,119 

Adults over 16 years 144,307 

Total Population 290,000 

In the testimony of Professor McCollum, delivered at one of the 
hearings, it was stated that on the basis of his careful experiments as to 
the milk requirements of animals and of human beings, he believed that 
every person, young and old, should consume not less than one quart of 
milk a day, or its equivalent. This would mean that the population of 
Rochester of 290,(X)0 should consume 290,000 quarts of milk daily. 

If we use the figures which are accepted by the New York Associa- 
tion for Improving the Condition of the Poor as representing the milk 
requirements of children and adults, children under 6 years would use 
one quart each; children 6 to 16, one-half quart, and adults, one-third 
quart. If these amounts of milk are applied to the population of Roch- 
ester, as above indicated, it would make it necessary that the children 
from 1 to 16 years in Rochester should use not less than 110,633 quarts 
daily for drinking and other purposes, and the adults over 16 years 
should use not less than 48,102 quarts for drinking and other purposes. 
This would require a total milk supply of 158,735 quarts, as compared 
with 77,500 quarts which was being used at the time the house to house 
canvass was conducted. This means that both children and adults are 
now using less than one-half of the quantity of milk which is required for 
the promotion of growth, and the maintenance of health and strength. 



IV 

UNDER-NOURISHMENT IN SCHOOL CHILDREN 

One of the most vital questions, if not the most vital question, con- 
nected with the problem of municipal milk supply, is the under-nourish- 
ment of children of school age and under school age. Wonderful dis- 
coveries made by the leading research workers in the chemistry of foods 
and nutrition, have shown that during the growing period of children, 
milk is a vital factor. In other parts of this report appears the testimony 
of Professor McCollum, emphatically showing that there is no substitute 
for milk for the growing child. 

The highest legal authorities agree that any action on the part of 
municipalities to increase their legal powers for the control over municipal 
milk supplies, must be based, not on economics alone, but on evidence 
that the health of the people is being injured through the present system 
of milk supply and distribution. There would be no real reason for the 
present milk agitation in Rochester or any other cities, if it cannot be 
demonstrated that public health is being injured. 

In the background of all movements and investigations connected 
with milk supply, is the idea that children are not receiving all of the milk 
which they require, and that some damage is being done to their health 
and welfare because of present conditions in the milk business. 

It is for the above reason that no branch of the milk survey of the 
City of Rochester is of more importance than the inquiry into the rela- 
tionship between the milk supply and the nourishment or under-nourish- 
ment of children. Recognizing this, the directors of the Survey early in 
the month of August undertook to make arrangements for a systematic 
examination of school children in Rochester. The program presented to 
the city authorities at that time was one which called for the determina- 
tion of the weight and height of all school children and also the securing 
of information as to their diet, especially with reference to the quantity 
of milk consumed by them. These plans were presented and approved 
by the Mayor and the Chairman of the Committee on Public Safety, and 
the director of the Survey was ordered to proceed with the investigation. 
The co-operation of the Board of Education was necessary in order to 
carry out these investigations in the Public Schools. This co-operation 
was secured and plans perfected for carrying out this work, when in- 
formation was received that the Bureau of Health intended to perform a 
similar investigation of its own. In order to avoid a duplication of effort 
therefore, and as a matter of courtesy to the Bureau of Health, the 
directors of the Survey sought the co-operation of the Bureau of Health 
in carrying out this work. The Health Officer, Doctor Goler, stated how- 



MILK SURVEY OF THE CITY OF ROCHESTER 



41 



ever, that he was equipped with a force of nurses sufficient only to secure 
information from 11 Public Schools. For this reason the director of the 
Survey asked the city authorities to furnish to the Health Bureau a suffi- 
cient force of nurses and other workers to carry out the weighing and 
measuring of school children in all of the 47 Public Schools in the city. 
The Commissioner of Public Safety consented to furnish such facilities 
and in accordance with this plan notified the Director of the Bureau of 
Health that such facilities would be furnished. This offer, however, was 
declined, and as a consequence, the Bureau of Health failed to carry out 
this work in more than the 11 schools above mentioned. 

Information was secured through the Board of Education as to the 
milk consumed by the children in all of the 47 Public Schools of the city. 
The children were classified into two classes^milk drinkers and non- 
milk drinkers. The report blanks used included the following items : 

School Number, Grade Number, Child Number, Age, Sex, Race, 
Height, Weight, Milk Consumed and Under-nourished. Through the 
Superintendent of Schools information concerning every school child was 
obtained on all of the above subjects, excepting height and weight. 

In the expectation that complete reports would be received from 
the 47 schools, the complete tabulations of the results from the 11 schools 
where height and weight were also obtained, was not attempted. For the 
purpose of showing what results could be achieved were this work com- 
pleted^ there is presented below a statement of a portion of these tabula- 
tions which have been prepared. 

In Table No. 15 is presented the statistics of the 11 schools in which 
the children were weighed and measured, showing how many children of 
each sex and race were in each school and the number of milk drinkers 
and non-milk drinkers. 

TABLE No. 15 

STATISTICS FROM ELEVEN PUBLIC SCHOOLS 

Per Cent. Number Per Cent. 

Number Number of Total Drinking Drinking 

Race. Males. Females. Total. Children. Milk. Milk. 

Anglo-Saxon 1,499 1,499 2,998 29.9% 1,843 60.5% 

Jewish 894 819 1,713 17.1% 1,328 77.5%> 

Latin 2,040 1,990 4,030 402% ' 2,112 52.4%o 

Teutonic-Scandinavian. 348 310 658 6.6% 360 54.7% 

Slavic : 284 286 570 5.7% 350 61.4% 

Other Races 23 33 56 .5% 40 71.4%> 

Totals 5,088 4,937 10,025 100.0% 6,033 60.2% 

A detailed statement of the children of each age from 4 to 16 of the 
Anglo-Saxon race — males — drinking milk and non-drinking milk and 
their total height and weight and average height and weight is presented 
in Table No. 16. 



42 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. 16 
ANGLO-SAXON MALES 







MILK DRINKERS 






NON-MILK DRINKERS 




u 


Jg 


(-< 


CJ r- 


(U _2 






■S 


*i 


<U JH 


O "r" 




OJ 


be 


bo 


bp be 


M be 




CJ 


M 


be 


M be 


bCbi 


4J 


c 






>> 


2-S 




^ 


^ OJ 


r3 <u 




2-s 


< 


^ 


H 


H 


< 


< 


< 


^ 


H 


H 


< 


< 


4 


19 


725 


782 


38.16 


41.68 


4 


4 


145 


166 


36.25 


41.5 


5 


65 


2,693 


2,824 


41.43 


43.45 


5 


13 


515 


550 


39.62 


42.31 


6 


115 


5,176 


5,183 


45.01 


45.07 


6 


40 


1,763 


1,789 


44.08 


44.72 


7 


121 


5,928 


5,700 


4S.99 


47.11 


7 


58 


2,808 


2,718 


48.41 


46.86 


8 


87 


4,819 


4,328 


55.39 


49.75 


8 


59 


3,150 


2,927 


53.39 


49.61 


9 


116 


6,889 


6,020 


59.39 


51.90 


9 


76 


4,433 


4,029 


58.33 


53.01 


10 


95 


6,316 


5,080 


66.48 


53.47 


10 


97 


6,238 


5,136 


64.31 


52.95 


11 


86 


6,168 


4,747 


71.93 


55.20 


11 


76 


5,459 


4,186 


71.83 


55.08 


12 


60 


4,692 


3,430 


78.2 


57.17 


12 


69 


5,414 


3,973 


78.46 


57.58 


13 


53 


4,586 


3,138 


86.53 


59.21 


13 


48 


4,117 


2,835 


85.77 


59.06 


14 


39 


3,897 


2,425 


99.92 


62.18 


14 


25 


2,267 


1,505 


90.68 


60.2 


15 


19 


1,965 


1,200 


103.42 


63.16 


15 


2 


1,470 


886 


105. 


63.29 


16 












16 


14 


213 


127 


106.5 


63.5 



In the above tabulation it is obvious that the children drinking milk 
weigh more than the children who do not drink milk. Taking each age 
independently and inspecting the column of "Average Weight" shows for 
example, that children 4 years old average 38.16 pounds, while the chil- 
dren of the same age not drinking milk, average 36.25 pounds. Follow- 
ing down these columns item by item, shows that with the exception of 
the children 12 and 15 years of age, the children of all other ages who 
drink milk weigh heavier than the children who drink no milk. 

These figures are sufficient to suggest a relationship between the 
quantity of milk consumed and the physical condition of the children. 
The relationship between physical condition and mental condition is so 
well recognized, that it is unnecessary to state that the child who is healthy 
and strong is also more vigorous mentally. 

If a sufficient number of statistics could be compiled, it is believed 
that the relationship between milk drinking and a healthy condition of 
the child would be even more striking than this. The figures in the above 
tabulation, however, are sufficiently striking to show that this method of 
inquiry deserves much greater attention than it has received and that 
great benefits could be expected not only for the public school children 
of Rochester, but for the public school children of other cities, if these 
children could be regularly weighed and measured and information 
secured as to their daily diet, especially with respect to milk drinking. 

As an example of the extent to which some cities have gone in this 
matter, it is interesting to note the action taken by the city of Seattle, 
Washington, under the able direction of Doctor Ira C. Brown, Medical 
Inspector of the Seattle Public Schools. Last year 97,000 examinations 



MILK SURVEY OF THE CITY OF ROCHESTER 43 

of school children were made by the public health nurses working under 
his direction. In the report published by Dr. Brown, entitled "The Seattle 
Way of Caring for School Children," he states : 

"My experience teaches me that unless a child get a good supply of 
milk until at least fifteen 3^ears of age, it will not develop properly. 
There may be no surface indications of weakness. But its system will 
lack that vitality that only Nature's Food, Milk, can give and it will 
readily fall a prey to diseases that a milk fed child will resist easily. I 
am speaking not only from my experience of many years in this school 
work but also as a father and now as a grandfather. 

"The city is organized in districts, a school nurse is in charge of each 
district. The size of the district and the number of. children under the 
supervision of one nurse, is carefully arranged so that each and every 
one may receive the requisite attention." 

Dr. Brown says further : 

"When a child just starting to school has his first examination a card is made 
out for it. Its physical characteristics are tabulated. If any operations or any 
forms of medical treatment are seen to be necessary a notation to this effect is 
made and notations are also made as to the carrying out of the operations or treat- 
ment that has been specified." 

"It was particularly noticed that many of the children received little or no milk. 
The parents were advised by the nurses to give each of their growing children a 
pint a day as the least amount sufficient for healthy development. Many of them 
could not, or imagined that they could not, aiford it." 

"So Dr. Brown outlined to the School Board the proposal of supplying milk 
at school to those children who were known to need it. The Board was sym- 
pathetic, but Dr. Brown's proposal was a voyage on an unknown sea. 'What is going 
to be the cost? Where are we going to arrive?' they asked." 

" 'I don't know,' replied Dr. Brown, 'but I am sure it will be some good place !' " 

So they gave him authority to spend up to $500 per month. Shortly 
after they removed all restrictions and told him to "go the limit." He 
has been "going the limit" ever since and the sequel is to follow. 

He obtains on contract a supply of high-grade pasteurized milk put 
up in half-pint bottles. All children, well-to-do and poor alike, obtain it 
at school on the presentation of milk checks. The well-to-do buy their 
checks. The children of the poor are supplied by the nurse in charge of 
the district, who is familiar with the conditions in each home. Thus no 
child is shown to be an object of charity and exposed to possible ridicule 
by other more fortunate children. 

The business end of the daily supply is handled by committees of the 
children themselves. The room committee takes the order of each child 
in the room for the following day. It then phones the order for the total 
amount required, to the Central Offi,ce. 



44 MILK SUR-VEY OF THE CITY OF ROCHESTER 

Should a child who has ordered milk fail to take it as arranged, 
through having changed his mind and spent his money for candy or gum, 
or something else that appealed to him, they let him understand that an 
order is an order and that he is required to pay the following day. In 
this way the child receives valuable training in the importance of doing 
as he agrees to do. 

The Children's Committee sells the checks to those who buy milk. 
They check up the amount of cash received against the number of milk 
checks sold ; also the number of milk checks received against the number 
of bottles issued. They put up the cash for deposit with the bank. They 
make out the deposit slip. This is part of their arithmetic and business 
training. 

"Within the first six months of supplying milk to the children at 
school," says Dr. Brown, "the teachers found that their efficiency in the 
school work had increased two and a half per cent. Restlessness and 
fidgeting seemed to disappear. Their power to give attention was in- 
creased. The plan has now been in operation for nearly four years. At 
the end of the fourth year, we intend to tabulate and publish the results. 
Covering such a period of time they will be conclusive. 

"It is not merely the children of the poor who have benefited. It is 
a well known fact that children of families in comfortable circumstances 
receive far less milk than their growing bodies need. When we began 
supplying the poor children, the parents of the others awoke to the de- 
sirability of their offspring having milk at school. It was to meet this 
demand that we began selling the milk checks to those who could afford 
to pay. 

"From this starting point public interest in milk has been awakened. 
Not only in the schools but also in the homes has the per capita use of 
milk been increased. I question if any other city in the country is con- 
suming as much milk per capita as Seattle." 



V 

MILK SUPPLY OF PUBLIC INSTITUTIONS IN ROCHESTER 

It is important to examine into the character, quality and quantity 
of milk used by public institutions. In such institutions, especially hos- 
pitals and asylums for children, milk is a most important article of diet, 
and experience has shown that for financial reasons there is in most 
municipalities a tendency to economize on the milk supply of institutions, 
with the result that very often the quantity of milk purchased is far too 
little for the needs of the inmates, and the quality is often so inferior 
that it is a menace to their health. 

The replies to the questionnaires sent out by the office of the Survey 
to Rochester public institutions are summarized in Table No. 17. 

TABLE No. 17 
Total number of institutions 26 

Children under 16 years of age 975 

Adults 4,612 

Total inmates 5,587 

Money daily spent for milk $ 372.27 

Money daily spent for groceries 1,760.62 

Total expenditure for food 2,129.85 

Daily quarts of bottle milk used 350 

" " " loose milk in cans used 3,271 

" " " buttermilk used 21 .5 

" " " skim milk used 33 

" cans of condensed milk used 35 

" quarts of cream used 39.5 

" pounds of butter used 350.7 

" quarts of ice cream used 11 

Quarts of milk used daily for cooking 72! 

Quarts of milk used daily by children on cereals and for 

drinking 661 .66 

Quarts of milk used daily by adults on cereals and for 

drinking 2,238.33 

Number of quarts of raw milk 2,884 

Number of quarts of pasteurized milk 737 

From the above information it is evident that 975 children consume 
daily 661% quarts of milk on cereals and for drinking purposes, while 
4,612 adults consume 2,238% quarts in the same way. No serious criti- 
cism can be made against the quantity of milk furnished to either the 
children or the adults, although the highest authorities now recommend 
that every child should have available for drinking purposes at least a 
quart of milk daily, or its equivalent. " 

In Table No. 17, the money spent for milk does not include one in- 
stitution having its own cows, and the money spent for groceries does 
not include two institutions which did not report such expenditures. 



46 



MILK SURVEY OF THE CITY OF ROCHESTER 



The daily per capita consumption of milk in these institutions has 
been determined by dividing the quantity consumed by children by the 
number of children ; the quantity consumed by adults by the number of 
adults, for each institution in the different groups. These figures are 
arranged according to the institutions in the different groups and pre- 
sented in Table No. 18. 

TABLE No. 18 
DAILY PER CAPITA CONSUMPTION OF MILK IN ROCHESTER 

INSTITUTIONS 



Name of Institution. 
Orphan Asylums 

Rochester Orphan Asylum 

Jewish Orphan Asylum 

St. Mary's Orphan Boys' Asylum.. 

Jewish Sheltering Home 

St. Joseph's Orphan Asylum 

St. Patrick's Orphan Girls' Asylum. 

Dorsey 

P. E. Church Home 



By Children. By Adults. Average. 
.81 qts. 



Hospitals 

Hahnemann 

Rochester General 

Homeopathic 93 

Municipal 1 .50 

Monroe County Tuberculosis Sanitarium 1.49 

Rochester State 

Infants' Summer .97 

Monroe County 1.00 

St. Mary's 2.00 

Park Avenue 

Institution, Industrial 

Salvation Army 



.50 qts. 


.87 qts 


.27 


.63 




.49 




.44 


.50 


.42 


.10 


.53 


.20 


1.00 


.11 


.47 


.49 


.60 


.53 


.74 


.51 


.62 


.63 


1.15 


.99 


1.21 


.39 


.50 


.56 


.88 


.32 


.41 


.10 


2.40 


.33 


.64 



Penal Institutions 

Monroe County Jail 

Monroe County Penitentiary 

Monroe County Almshouse 

Homes and Others 

St. John's (German) Home for Aged. 

German Students' Home 

Rochester Girls' Home . . . 

St. Elizabeth's Girls' Home 

St. Ann's Home for Aged 

Rochester Friendly Home 





.45 


.45 




.24 


.47 




.18 


.37 




.13 


.26 




.75 


.88 


.21 


.33 


.50 


1.50 


.16 


.30 




.44 


.50 




.30 


.60 



In the above table it is noteworthy that among the orphan asylums 
two of them are providing milk for children at the rate of .30 and .35 
quarts per child, while one institution provides .48 quarts per child. 
When this is compared with the recommendations made by Professor 
McCollum and other authorities that each child should have at least one 
quart of milk a day, it is obvious that these children are receiving much 
less milk than is required for their health. When this is compared with 



MILK SURVEY OF THE CITY OF ROCHESTER 



47 



the quantity of milk fed to children in the Infants' Summer Home, which 
is approximately one quart daily, and the quantity furnished to children 
in the hospitals, it is clear that the orphan asylums are not feeding to their 
children nearly sufficient quantities of milk. An examination of the milk 
fed to adults shows that in the three homes for the aged, these old people 
are receiving .13, .30, and .44 quarts of milk daily. Food experts now 
recognize that old people should be supplied with an abundance of milk, 
as milk is far more suited to their digestion than other forms of food. 
The quantity of milk supplied in these homes for the aged is less than is 
necessary to maintain the health and strength of these people. 

In another manner the milk supply 'of these institutions has been 
tabulated by summarizing the child population, and the quarts of milk 
used by children, and the adult population and the quarts of milk used 
by adults. These summaries are prepared for the purpose of showing 
how the character of the group of institutions is related to the quantity of 
milk used. 

TABLE No. 19 



Institution. 


c 



Daily Quarts 
Milk Used 
by Children. 


Children's 
Per Capita 
Consumption. 


•7: 
< 


Daily Quarts 
Milk Used 
by Adults. 


Adult 

Per Capita 
Consumption. 


Orphan Asylums (8) 

Hospitals (5) 


763 
123 

62 
27 


443 
132 

60 

27 


.5806 
1.0731 

.9677 
1.00 


202 
1,086 

349 

50 

2,925 


42 

685 

118 

28 

1,365 


.2079 
.6307 


Old People's Homes (3) ... 
Infants' Summer Home (1) 
Penal and other institutions 


.3381 
.5600 
.4666 


. 


975 


662 


4,612 


2,238 





From Table No. 19 it appears that the per capita consumption of 
milk for children in orphan asylums is by far the lowest of the consump- 
tion of children in any other institutions. Under a proper system of 
feeding, one would expect that the milk consumed by children in orphan 
asylums would be in excess of the quantity of milk consumed in other in- 
stitutions, or at least its equivalent. On the other hand, in old people's 
homes the per capita consumption for adults is lower than the consump- 
tion for adults in either hospitals or penal institutions. 

In the matter of the sanitation of their milk supply, these institu- 
tions are open to serious criticism. There are only 737 quarts of milk 
pasteurized while 2,884 quarts are raw milk. Nineteen institutions out 
of twenty-six have their supply strictly limited to raw milk. This means 
that these institutions are constantly exposed to the sudden onset among 



48 MILK SURVEY OF THE CITY OF ROCHESTER 



their inmates of an epidemic o£ infectious diseases, due to milk infected 
by dairy animals or dairy employees. The record of such institutional 
epidemics is a long one, and it has only been a matter of good fortune that 
the institutions which are supplied with this raw milk have escaped. The 
pasteurization of an institutional milk supply is now recognized as neces- 
sary to safeguard the inmates from epidemics of infectious diseases. 



VI 

THE FOOD VALUE OF MILK 

There is no better way of presenting this subject than to quote 
extracts from the testimony of Dr. E. V. McCollum who appeared as a 
witness on behalf of the Committee at a pubHc hearing held in the City 
Hall, Rochester, September 18, 1919. 

Dr. McCollum is recognized as one of the leading food chemists of 
America, and the chief exponent of the food value of milk. He has had 
a most unusual training and experience in studies in the chemistry of 
nutrition in Yale University, University of Wisconsin, and in Johns 
Hopkins University. At the present time he occupies the position of 
Professor of Chemical Hygiene in Johns Hopkins University. His testi- 
mony in part was as follows : 

"At the time I left Wisconsin we had conducted approximately two 
thousand feeding experiments, every one planned with a theory under 
lying, and every one planned with an attempt to contributing to an answer 
regarding a long series of questions of a technical nature on nutrition. 
Those experiments in no case were under perhaps six weeks in length; 
a considerable number of them at least four years in length ; and this 
work involved the use of all the different types of animals that are avail- 
able on an experiment station farm, together with such small animals as 
are usable for laboratory study. Since going to Baltimore we have com- 
pleted approximately fifteen hundred further experiments with animals, 
each one contributing to an interpretation of the technical problems which 
we have in view. 

"The first observation that we ever made that was of great import- 
ance in perfecting our views regarding the whole subject of nutrition was 
made in 1912. It consisted of a demonstration that it was possible to 
make a certain diet which could be fed to a group of animals and would 
lead to a failure of nutrition ; that the same diet fed with such vegetable 
fats as olive oil or cotton seed oil or lard or tallow or almond oil, would 
still lead to prompt failure and always with one type of error in nutrition, 
or rather pathological state. That pathological condition relates to the 
eyes. This particular type of diet fed with any of the vegetable fats or 
body fats of animals would lead to swelling of the tissues around the eyes 
and inflammation of the eyeball, and total blindness, and ultimate death. 
We produced blind rats, blind pigs, blind cows, blind pigeons, and there 
is no question but what it applied to numerous species of animals. But 
curiously enough this same diet which was so serious when fed with vege- 
table fats, became nutritious for an animal when we introduced certain 
other fats instead of the vegetable fatsor body fats of animals; when we 
put butter fat or egg yolk fat into this diet and made no other change, no 



50 MILK SURVEY OF THE CITY OF ROCHESTER 

change in the methods of handling animals, we never saw this eye trouble 
develop. We found even after the eyes could no longer be opened, we 
could change the diet in connection with butter fats and with vegetable 
fats, and if the animals were not too far gone, the introducion of milk 
fats or egg yolk fats into the diet would cause a progressive reaction and 
recovery, and frequently a complete recovery. It is possible even after 
the eyes are so far deteriorated as to cause permanent blindness to cure 
this condition by introducing butter fat or egg yolk fat into the diet. This 
observation that I mention was first published in 1913, in June; and in 
1913, in November, Dr. Osborne and Dr. Mendel . of Yale published 
essentially the same type of diet, extending the work somewhat by saying 
cod liver oil would relieve his pathological state in just the same way 
that butter fat or egg yolk fat did. 

"There are three types of diets which have succeeded both for ani- 
mals and for men. The first of these is the type of diet which is entirely 
derived from animal tissues. This is used by such animals as the lion, 
the tiger; and such men as the Eskimo or the carniverous Indian of the 
plains east. of the Rocky Mountains in the days when the buffalo fur- 
nished his sole food supply. Now, that does not mean that simply meat 
eating is satisfactory. The Eskimo succeeds in living a fairly long period ; 
they rarely reach a great age; never live a great age in terms of great 
age of ours. He rarely lives 60 years, and he is an inefficient individual. 
He succeeds, as we know from animal experimentation, because of 
prodigal habits in the choice of food. The Eskimo, I know from the testi- 
mony of a number of people, selects as the most appetizing portion of the 
animal that he may kill for food, the blood. If he kills a reindeer, he 
consumes his blood first of all. The American Indian on the Western 
plains did the same thing, killing buffalo ; they liked warm, fresh blood. 
The lion and tiger do the same thing. The second choice of food in the 
carniverous animal is always one of the organs, such as the liver or the 
kidney or its nervous tissue. They will open the brain cavity or body 
cavity and eat those organs second after the blood. The third choice of 
the carniverous animal is the bone marrow or soft ends of the bone, the 
same as man. The last choice of the carniverous animal is the muscle 
tissue. That is the one which we in temperate regions living on both 
an animal and vegetable diet, select as the most appetizing cuts of meat, 
such as round steak, porterhouse steak, and roasts, and we do not like 
the highly flavored glandular organs like the kidney stew every day or 
the liver and bacon. This is a type of diet which succeeds in a measure. 
Carniverous man like the carniverous animal, is lethargic after eating. 
He disturbs himself only when he is hungry. Dr. Grenfall in his book 
on Labrador says, the Whites will catch ten fish to the Eskimo's one. 



MILK SURVEY OF THE CITY OF ROCHESTER 51 

The carniverous animal when fed on this diet is indifferent and relatively 
harmless unless put on the defensive. The same is true of the carniverous 
man. That is not a type of diet which succeeds from a standpoint of 
success as we regard it in civilized communities. 

"Now, there is a second type of diet which succeeds with animals 
and with men up to a certain point. I refer to a type of diet common 
in parts of India, in Southern China and Japan, the Philippine Islands 
and in tropical countries generally; that is, the diet derived from vege- 
table products and meat. These people eat the cereal grains, beans and 
other seeds, and to some extent peas. They eat tubers, more or less 
fruit, and they eat meat, either fish or animal flesh, and they eat extraordi- 
narily liberally of the leafy portion of plants. Now, animal experimenta- 
tion in our laboratory first revealed the fact that this diet, cereals, tubers, 
roots, together with muscle tissue of animals, the type that the carniver- 
ous creature and human being selects as his meat ; this type of diet fails, 
but when supplemented with leafy food it succeeds up to a certain point 
with animals that can make a steady diet of cereals, tubers, roots and 
muscle tissue. But we cannot get success if he leaves out leaves. 

"The leaf is so constituted with respect to quality of its proteins and 
mineral content and this substance which differentiates cod liver oil from 
vegetable fats, that the leaf supplements the tuber and edible root and 
muscle tissue of animals. But those people, the people, for example, 
from Southern China, the Chinese who run laundries in this country, I 
think you will all agree with me that they are in general a small people ; 
very spare and rather small. They are inclined to be somev^^hat anaemic, 
yet fairly normal individuals as Chinamen would ordinarily go. It is a 
common practice, however, throughout China, according to information 
I have gained from a number of sources, for the Chinese men to want to 
retire from active business at fifty years, and they do, when it is possible. 
They quit work at fifty years and sit and smoke the rest of their days, 
the son or sons supporting the father. Now, that type of people, the na- 
tives of the tropics and of the Orient, while they exercise a certain 
amount of ingenuity in certain lines, they claim to have first invented 
gun powder, and have invented puzzles and games that have come down 
to our time — but they have not contributed, so far as I have been able 
to learn, to any new invention, or attained any standard in mental activi- 
ties as have other peoples. Of course, we must accept this judgment on 
them with, a certain amount of appreciation of the relation of other fac- 
tors of progress that they bear; the type of religion that people adopt 
will determine in a great measure certain habits of life and thought, and 
that probably their food habits have something to do with their lack of 
enterprise and aggressiveness, and their high infant mortality. These are 



52 MILK SURVEY OF THE CITY OF ROCHESTER 



related to the type of diet in some degree because the fundamental basis 
of enterprise, aggressiveness, achievement, is physiological well being. I 
will not dilate any further on that subject because part of it would be 
conclusions which we would necessarily base on very skimpy evidence. 
We must make a very thorough study of this problem before we draw 
positive conclusions on this. 

"Now, there is a third type of diet which succeeds with animals and 
men; that is, the diet which is derived from cereals, from tubers, edible 
roots, meat, more or less leaves and more or less dairy products, and that 
is the best type of diet we know of. When we maintain one series of 
groups of experimental animals on carniverous diet, and another series 
in which a leaf enters partly as diet ; another diet in which milk and its 
products enter freely; and diets which are comparable in every respect, 
but which contain none of those three things; by observing those animals 
throughout their span of life, we find the diets are faulty when they fail 
to contain either leaf or milk, unless strongly of carniverous origin. 

"When we observe our animals throughout their span of life, we find 
that faulty diets lead to a failure to grow and reach adult size ; to failure 
in reproduction, to high mortality and early death. By introducing such 
foods as leaves and milk, ( foods which I came to designate about a year 
and a half ago, talking to the American Economic Association at Atlantic 
City, as corrective foods, because they correct whatever else we are liaWe 
to eat because they consist of the essentials), whenever we introduce an 
abundance of milk or leaf, we cure or correct the diet of these animals; 
prolong their life ; increase their size and their capacity for reproduction ; 
reduce their infant mortality; and prolong the period of vigor and main- 
tenance of youthful characteristics. All these things correlate well with 
our study of human experience. 

"May I say at this point that there are three substances which we 
have not yet discovered, the chemical nature of which we do not know, 
which are occasionally absent from the diet of men to an extent that leads 
to the production of three deficiency diseases. Most important of these 
is a disease known as beri-beri. It is common among Orientals — in China. 
India, in the Philippines; very common on the East Coast of South 
America, and parts of Brazil. They have it now in Labrador and New- 
foundland. It is a deficiency disease due to a lack of a practically un- 
known substance which is lacking from certain diets. The chief char- 
acteristic of this condition is a general paralysis. The people in Labrador 
live essentially on a white bread diet and fish, and very little else — a 
certain amount of meat perhaps. The people of Newfoundland live on a 
diet of bread and fish and salt meat and a little raisin duff, month after 
month. They develop this condition of paralysis and go to the hospital 



MILK SURVEY OF THE CITY OF ROCHESTER 53 

to be fed up on lime, and pretty soon are out in apparently a normal con- 
dition because they go to the hospital in the early stages of the disease. 
This condition has taken a toll of tens of thousands of lives throughout 
China, the Philippines, and several tropical parts of the world, and a few 
other places. 

"The eye disease which I first described as being due to a lack of 
something such as butter fat supplies, I know of at least fifteen hundred 
cases of it, chiefly among children who use a cereal diet too largely and 
'have developed this swelling of the tissues around the eyes. Many went 
blind ; others were cured through the very keen observation of a physician 
named Morey who had the acuteness of observation to discover that if he 
gave these children a sufficient amount of chicken livers, their eyes would 
get well. I have already mentioned the fact that the fats from the inside 
of the cells of liver or of the kidney of an animal contain this unknown 
something which butter fat supplies. Over in Denmark a physician 
named Spuck, near Copenhagen, reported he met with about sixty chil- 
dren in the rural districts who had this eye trouble. He said that these 
were the children of milk producers ; that there being such a good market 
for butter and cream they passed the milk through a centrifugal sepa- 
rator and sold the cream, and fed the babies on skim milk and before long 
they developed this eye trouble. He supposed that this was a fat defi- 
ciency disorder. We now know he was wrong in one respect; that you 
could give a child all the skim milk and the olive oil and cotton seed 
'oil or vegetable oils that you could get, but you would not relieve that 
eye trouble, but if you give him whole milk, (and he did do that), the 
eyes come right back to normal. 

"Apparently this disease is fairly common in various parts of Egypt 
and Southern China. I rely in making this statement on the opinion of 
Dr. Heiser of the International Health Bureau, who expressed this view 
after examining some animals in New York. This disease had been pro- 
duced experimentally in my laboratory ; he thought it was the same thing 
he had seen many times in Egypt and Southern China. 

"I was very much interested about two weeks ago to receive a letter 
from a physician who was in Atlantic City, stating that very recently 
near Warsaw in Poland, his attention had been attracted by about thirty 
children sitting on a little hummock and whose movements were peculiar, 
and led to the arresting of his attention. He went over and examined 
them and discovered through his examination and information obtained 
from others, that these children were either blind or nearly blind, and they 
regarded it there as starvation blindness, which is apparently another in- 
stance. He said, 'This is fairly widespread in certain parts of Poland.' 
There are other instances of the occurrence in this country of this par- 
ticular deficiency disease. 



54 MILK SURVEY OF THE CITY OF ROCHESTER 

"And there is another type of deficiency disease, i. e., scurvy; a dis- 
ease, long known among sailors, among British soldiers in Mesopotamia, 
and it has occurred among men fed on certain food where the diet con- 
sists week after week of essentially non-perishable foods like white flour, 
rolled oats, rice, peas, beans and potatoes, a certain amount of meat, and 
foods cooked before they are fed. A patient feels chilly and the teeth 
become more or less loose; the flesh of the body loses its peculiar prop- 
erties and you can punch a great hole in the thigh with your finger and^ 
the depression does not disappear promptly; the individual suffers con- 
siderable pain. I will not attempt to detail a description of the disease; 
but it is a very serious disease ; it is occurring now more or less frequently 
among individuals. 

"Those are the deficiency diseases. I mention these things to im- 
press upon you the fact that as we examine human problems in nutrition 
in the light of a great deal of exact data obtained by a very careful plan 
of nutritive experiments on animals, we find that groups of human beings 
in various parts of the world are actually failing in nutrition from one 
cause or another, and we know now specifically the nature of the 
deficiencies in their diet and specifically the results of those errors in their 
nutrition. 

"There seems to be a close relationship between the general health 
of fairly large groups of people and minor errors in the diet. We do 
not have to have a diet so deficient as to lead to prompt failure, or to 
lead to a development of a specific deficiency disease which brings the 
individual into the hospital, or he dies, or attracts the attention of his 
friends to the point where he receives medical attention. We do not have 
to restrict our interpretation of faulty diet to faults of these magnitudes; 
we are in a position, I feel confident to say definitely, that there are 
large groups of people who are deriving their diet largely from meat of 
a muscle tissue, a type of wheat flour in the form of bread and other 
articles, from potatoes, and from other cereals, such as rolled oats, rice, 
together with beans and peas ; there are many people who make at least 
90 or 95% of their table diet from cereals, tubers, and edible roots and 
meat. Such diet in our experience with animals is never satisfactory 
Such a diet derived from cereals, tubers, roots and meat may lead to 
growth over a considerable period, but our experimental animals always 
fail to reach a full adult size when they stop growing. Their capacity for 
reproduction may be fairly good, but the mortality of their young is 
always high ; and the adults themselves instead of living the full normal 
span of life which the species is capable of, show signs of old age early 
and have the specific signs characteristic of senility, poor condition, 
feebleness, nervousness, and irritability, and a gradual decrease in body. 



MILK SURVEY OF THE CITY OF ROCHESTER 55 

Those are the characteristics of animals in the second half of life, or even 
much earlier, where they are fed on diets affording wide variety and 
which might fill the need of a dozen years ago, but not properly dieted. 

"We find on examining the diets of mankind that there are large 
groups of specially employed people in cities who are purchasing almost 
all of their food supply from a grocery store or meat market; and our 
system of food distribution has led to the development of certain lines 
,of food products which can be handled with little hazard by the grocer. 
Those are the cereal products; wheat flour, rolled oats, rice, corn prod- 
ucts ; various kinds of canned goods ; tubers such as potatoes, sweet pota- 
toes, and meat. These things are the staple articles of diet. That class 
of foods in no combinations has ever succeeded with experimental ani- 
mals beyond simply bringing them up to partial completion of growth, 
and faulty performance of the functions of adult life; low reproductive 
ability; high infant mortality. 

"This same kind of diet supplemented with an abundance of green 
vegetables makes a diet sufificiently complete to make the type of human 
beings we see among the Chinese, the Japanese, and the Philippines. Dr. 
Heiser told me that in his experience a full grown, middle aged Philip- 
pino who had grown up on a Philippino diet, a diet of meat, vegetables, 
cereals, grain and fish, would, when he went into the Government em- 
ploy and was fed up according to European standards, the average adult 
Philippino would gain about 30 pounds in weight. These are undersized 
people, not because they do not have enough to eat, but because it is not 
properly selected. Their diet is capable of bringing up to adult life, but 
not capable of promoting physiological well being to the extent which 
is reached in the United States. 

"We find on examination of the situation through visiting nurses 
and city health authorities, certainly in Baltimore, that large groups of 
employed people who derive so large a portion of their diet from meat, 
cereals and tubers, are the ones who furnish the very high mortality every 
year from tuberculosis. Here again human observation correlates very 
nicely with the observation on animals. When we feed animals on a 
faulty diet, we find they may come up for a time and look fairly vigor- 
ous and normal up to the point where they cease to grow, a little under- 
sized; they fail at an early date; by the time they reach the age of half 
way through what the species is capable of, they will begin to go down 
hill; they do not simply die of malnutrition, but at a certain point in 
lowered vitality they are susceptible to infection of one Icind or another; 
some die of tuberculosis and some of pneumonia; some infectious dis- 
ease usually takes them off. That is what happens in the course of famine 
conditions in the world. In the first place, when the population passes 



56 MILK SURVEY OF THE CITY OF ROCHESTER 



from a condition of well being and abundant food supply, passes towards 
famine conditions, the milk supply fails ; the supply of green vegetables 
soon fails because the population is restricted more and more to those 
things that can be preserved over long periods. In cities, the diet of milk 
and vegetables runs down more or less rapidly and later there is an actual 
shortage of food. At a certain point in the lowered vitality of the com- 
munity, people do not die of starvation, but an epidemic of one form or 
another arises and takes off hundreds of thousands or tens of thousands, 
according to the extent of the famine. 

"Q. In the experimental work you are doing in Baltimore at the 
present time you are using rats? 

A. We use rats almost altogether ; we use more or less guinea pigs, 
and we have had farm pigs and cats, and recently prairie dogs for special 
experiment. 

Q. About how many of these animals are you feeding at the present 
time? 

A. We have about 1,500 at the present time. 

O. Do you mean to say that if these animals are fed from their in- 
fancy on such things as bee'f steak, potatoes and bread that they will not 
grow? 

A. They will grow for a time but they will never reach the full 
adult size; will always be somewhat stunted, and their inferiority we 
judge by their low reproductive capacity, in the high infant mortality 
and in the short span of life or early appearance of signs of old age. 

Q. When you say that if you add green leaves to their diet it seems 
to improve their condition, what kind of green leaves do you mean? 

A. We have experimented with such leaves, especially with such 
leaves as are of interest from the standpoint of human nutrition. The 
list of leaves that we work with includes spinach, cabbage, cauliflower, 
brussels sprouts, turnip tops, beet tops, etc. We also work very consid- 
erably with alfalfa leaves and clover leaves. 

Q. If they could eat a sufficient quantity of green leaves do you 
think that would put them in proper condition? 

A. Yes, they would succeed in nutrition as does the cow, the horse, 
the sheep or goat; but the digestive tract of the rat is not sufficiently 
capacious to enable him to eat of this bulky type of food. Green leaves 
in sufficient amount would entirely correct the faults which will other- 
wise exist in this type of diet. 

Q. Is the human digestive tract so arranged that they can eat a 
sufficient quantity of green leaves to keep them in good condition? 

A. Yes, up to the standard which we observe in certain Orientals 
and tropical people; they fall short in general in the span of life, and in 



MILK SURVEY OF THE CITY OF ROCHESTER 57 

figure, and capacity to rear their young, as compared with Europeans 
and Americans, except that we use much less of the leafy foods and 
much more dairy products. 

Q. Your belief then is that the dairy products contain this vital 
substance to promote growth to a larger extent than the green leaves? 

A. Our conclusions are that the use of milk as a food to correct 
the short comings of all other things that are commonly used as food is 
a matter of the greatest importance to our welfare and that is a factor 
of great importance in determining the standard of public health. The 
cow consumes relatively enormous amounts of leafy foods in the form 
of hays and silage and the rest of her diet is a grain diet of by-products 
in the milling industry; the peculiar qualities of her milk are due to the 
fact that she herself absorbs so much of the products derived from the 
leafy portion of her food. 

O. You feel that the cow's digestive organs are so arranged that 
she can consume a sufficient quantity of these green leaves to keep her- 
self in a normally healthy condition? 

A. There is no question about that. 

O. What do you call these substances? 
• A. I have tabulated in my note-books about twenty-five different 
names that have been given to these three different substances. The first 
name that appeared and the one which is still most popular, is the term 
'Vitamine.' 

Q. How do you spell that ? ' 

A. V-i-t-a-m-i-n-e-s. They have been termed 'Acessory Food Sub- 
stances.' I gave two of them a name, designation letters of the alphabet, 
differentiated on the basis of their solubility; one. Tat Soluble A,' and 
two, 'Water Soluble B.' Now, at that time that was all there were. Later 
on it became necessary to modify that to designate one that protects 
against scurvy that is recently denominated as 'Water Soluble C 

Q. Which one of these promotes growth in the individual? 

A. He must have all three of them present in order for growth and 
health to be maintained. 

Q. Now, is it your idea from these experiments that human beings 
will do better if they consume the correct amount of butter fat and of 
milk than they will if they try to maintain their lives on green leaves? 

A. I have been forced to the conclusion that milk is a better food 
for the correction of the faults in cereal and meat diet than are the leaves, 
largely because of the concentrated character of the food. 

Q. You think that the civilized nations of the world then owe their 
development to the use of dairy products ? 



58 MILK SURVEY OF THE CITY OF ROCHESTER 



A. I am inclined to hold that belief; one cannot establish at the 
present time such a view, but there is considerable evidence that that is 
the case. I can give you a few examples perhaps which will illustrate 
why I believe that. About the tenth to the twelfth and thirteenth cen- 
turies there was a great invasion of Europe as far as the Danube and of 
China by the Mongol hordes of Central Asia. Now, the Chinese are a 
people who do not or did not use dairy products ; they used as their sole 
protective food, as their principal protective food, leaves to cure the de- 
ficiencies of their diet; they had used eggs in considerable amount, but 
they did not use dairy products. I have mentioned the fact that these 
people have not progressed in science, literature and art to the extent 
that certain other people have, but they have furthermore been overrun 
by hordes from the North and Northwest, rapidly succeeding invasions 
from the North and West throughout the period of history, and the peo- 
ple who have overrun China so many times are the Mongol hordes of 
Central Asia who are keepers of flocks and herds and whose principal 
article of diet is sour milk. They have overrun and been a thorn in the 
side of Russia up to within the last five or six hundred years ; they over- 
ran the country as far West as the Danube in the thirteenth and four- 
teenth centuries. 

The ancestors of the Turks were successful in war, extending their 
conquest westward, and lived on a diet of fruit and sour milk. The Arab 
living in a hot climate, in a climate whose daily temperature at noon fre- 
quently rises far beyond 100 degrees, lives largely on sour milk. They 
have camels' and goats' milk to some extent and to some extent cows' 
milk. Those people live largely on sour milk and on such a diet they not 
only live in the Torrid Zone, but they have energy, endurance and courage 
to traverse the weary caravan trails of the desert under a burning sun. 
The people of Europe and America have been great users of dairy prod- 
ucts, and they and the very few other people in places where new coun- 
tries have been settled by descendants of Europeans have reached the 
highest stage of civilization; have cultivated the best system of religion 
that we know of; have advanced furthest in scientific attainments, in 
literature and art and music and all lines of achievement of the human 
intellect. I believe these statements can scarcely be successfully con- 
troverted, and if there is anything wrong with them, I have been unable 
to learn it. 

Q. Well, do you believe that after an adult has attained full growth 
that it makes any difference from that time on whether the diet includes 
dairy products or not ? 

A. It certainly does in the case of all types of experimental animals 
of the omniverous type with a limited capacity of digestive, tract with 
which to work. 



MILK SURVEY OF THE CITY OF ROCHESTER 59 

Q. What do you find happens to them after they have attained their 
full growth if deprived of dairy products? 

A. What happens to the animal is the early onset of old age. There 
are certain diseases which are commonly grouped together as old age 
diseases; those are, hardening of the arteries, or arterial sclerosis; defects 
of the heart; kidney degeneration; and the development of cancers or 
tumors. These four types of pathological conditions are characteristic 
and have been right along, of people advanced in life. Cancer occasion- 
ally occurs in a weak person, and tumors, but almost always in persons 
who are past middle life; the same is time of Bright's disease and 
diabetes. As a rule, but by no means always, they are characteristic, they 
occur in persons who are somewhat advanced in years, middle life or 
after. Hardening of the arteries, heart defects, are characteristic of old 
age. 

Data accumulated by various insurance companies show that while 
say, 60 years was the age at which there was the greatest number of 
instances of these old age diseases, thirty years ago, they have been in- 
vading the earlier years of life with each succeeding decade, so that now 
many people of forty are developing typical old age conditions where 
formerly they developed them much later in life. 

We are all familiar with the fact, we see every day people on the 
street who are actually only 30 or 40 years old, or 50, who look much 
older than certain other people who we know are actually in years much 
more advanced. What is this early aging due to? We cannot dispose 
of a question of this magnitude at the present time. We have a great 
deal of knowledge of nutrition, technical knowledge of nutrition, based 
on animal experimentation, and correlated with other of human experi- 
ence to a certain degree, but we are still in the progressive stage in this. 

But we have an immense amount of actual observations on the entire 
span of life of experimental animals which shows that early breakdown 
and development of the symptoms of old age at a period of one-third or 
a quarter of the normal span of life of which that species is capable is 
brought on by faulty diet. How far does this apply to human problems ? 
Statistical studies have shown how many people are trying to live on a 
diet, rolled oats and meat and tuber or root diet, which is unsatisfactory 
for experimental animals. Are we to assume so far as data have been 
collected and the results of animal experimentation correlate very well 
with human experience that it does not correlate in the field where we 
can still gain considerable knowledge? I think not. 

It is that group particularly who are industrially employed, whose 
earnings are fairly low, who confine themselves to this cereal and meat 
and tuber type of diet, that go down with tuberculosis and with other 



50 MILK SURVEY OF THE CITY OF ROCHESTER 

diseases at an early age and show signs of early age; early as the statis- 
tics of insurance companies just mentioned, show. All these correlate 
so well with animal experimentation, that I am inclined to think that since 
we know that large groups of people are living on that diet, that the 
early ageing we have observed is in a great measure the result of a faulty 
diet. I believe this so strongly that I have been giving a considerable 
amount of attention to urging the public to use more of those foods 
which in our experience with animals improve the diet and well being 
of the animal and prolong the period of youthful vigor and postpone 
the onset of old age. 

Q. By that you mean that in your opinion the use of milk and dairy 
products would postpone the onset of old age? 

A. I think there is but little question that that is true. 

O. In the case of infants and the children after weaning, we will 
say after the age of two years ; do you consider that the growth of that 
child will be retarded if it does not use a sufficient quantity of milk? 

A. There is no question in my mind that that is true. I make that 
statement on the basis of a very considerable number of observations of 
children in Baltimore. 

Q. Will you state what those observations were? 

A. In one series of observations I examined the children in a cer- 
tain orphan home in Baltimore. These children are fed almost entirely 
on a cereal and meat diet. They are surprisingly undersized ; tuberculosis 
is astonishingly prevalent in that institution, although the hygienic condi- 
tions are everything that could be desired ; the building is relatively new, 
a lot of air; it has the best toilet facilities and surrounded by acres of 
playgrounds with woods on it, and the children run out doors and play 
when they are very small. Some months ago I secured by private gift, 
funds for the feeding of these children so far as these funds would go, 
and unfortunately, they did not reach throughout the institution. But I 
have selected about one-half of the children between four and five years 
of age and have been giving them for about five months now, a liberal 
amount of milk in addition to the cereal and meat diet which the institu- 
tion itself regularly feeds them, and that is the same as fed to the rest 
of the children in that institution, that is, with cereal and meat diet. And 
we have kept accurate measurements of weight and height, of certain sim- 
ple strength tests, the muscles of the arms and legs of a similar group of 
about forty which the institution has continued to feed. These two 
groups contrast in the most remarkable fashion ; those which we fed a 
liberal amount of milk in addition to what the institution was feeding 
have responded in nearly all cases except in three or four where the 
children are badly infected with tuberculosis. Their response and gain 
in weight was unbelievable unless you could see the tables. 



MILK SURVEY OF THE CITY OF ROCHESTER 61 

On the other hand, there was scarcely any growth in any of the forty, 
or forty-one to be exact, of the children still fed on the cereal and meat 
diet by the institution. Only three or four children have made any ap- 
preciable gains, and those apparently have made their gains because the 
parents frequently visited them bringing them some food. It is a form 
of demonstration which has been of great value to me in convincing me 
that the general theory which I have set before you is correct. I have 
also a large number of observations on children in a certain Jewish school 
in Baltimore which shows 50 per cent, of them to be 25 or 30 per cent, 
under weight for their age and height. 

O. Do you know of any evidence that undernourishment is of com- 
mon occurrence in children who are not properly fed on milk? 

A. There has been a general awakening in several cities during the 
last few years in the matter of the interest of child welfare and conserva- 
tion of child life. This is not only true in America, but the world over, 
as is shown by the activities of the Red Cross in various places in trying 
to rescue child life from its dangers. There have been medical examina- 
tions in various cities of all the school children, or a large number of 
them, and I have in mind particularly New York. I cannot state exactly 
now the per cent, of undernourishment in the total number examined. 
If I remember correctly, there were approximately seventy-five thousand 
school children examined a year or so ago, and I believe there were 21 
per cent, undernourished. There have been made very extensive observa- 
tions of children in Seattle, Washington, not only with respect to under- 
nutrition, but especially the condition of the teeth of children, which is a 
very good index of the physical development of the child. 

Q. Do you think it is a desirable thing that there should be a sys- 
tematic effort to weigh and measure school children ? 

A. The measurement, or I think the v/eight and the accurate record- 
ing of those observations, together with such other medical observations 
as it may be possible to make on all school children in every city and 
hamlet of this land, is one of the most important duties of the govern- 
ment. It should be the attitude of local authorities to carry that out in 
every instance. We have no moral right to allow children to grow up 
on faulty diets which make it impossible for them to develop as well as 
their capabilities make possible. 

Q. You think that such a systematic weighing and measuring 
would be a great help in revealing the presence of under-nourishment ? 

A. There is no question about that, and interest in this matter is 
now manifest in various communities, and there can be no question but 
that it would be of great value in aiding us in further correlating the 
data which we have obtained from animal experiment to human problems. 



62 MILK SURVEY OF THE CITY OF ROCHESTER 

It will enable us to determine more or less exactly the gravity of the 
situation which exists in various places in human nutrition. 

Q. Do you believe that this deficiency in diet is very widespread and 
very common at the present time ? 
. A. I believe that it is. 

Q. Both in adtilts and children? 

A. Yes. 

O. How much milk do you think an adult ought to drink a day to 
keep himself in good condition? 

A. I have believed for two or three years that the more nearly an 
adult or a child approximates the taking of a quart of milk a day, the 
better off he will be. 

Q. You would prescribe a quart of milk a day? 

A. I would. 

Q. For every adult and every child ? 

A. Yes. I believe that so much that I have adopted that regime in 
my own dietary habits, and several people who have worked with me who 
have studied the diet as I have, have also been so convinced as to do 
likewise. 

0. You do not think there is any substitute for the growth pro- 
moting substance in milk that can be found in any other way ? 

A. I would prefer to answer that question by saying that this matter^ 
was discussed last December at Chicago, at a meeting of a group of about 
twelve men, bacteriologists, health officers, and physiological chemists, 
and students of nutrition; a group of men known as the National Com- 
mission on Milk Standards which was organized by and is financed by 
the New York Milk Committee. This group of men discussed that ques- 
tion in Chicago last fall and arrived at the unanimous conclusion that 
milk is the only food for which there is no effective substitute. 

O. And what is your opinion regarding the cost of milk at the pres- 
ent time as compared with the cost of other foods? Have you looked into 
that question? 

A. Yes. At the present time milk is one of the most economical 
food stuffs. That fact is not generally realized, but I feel it is the con- 
census of opinion of those who are qualified by technical education to 
judge this matter ; I think they will all agree that even at the present high 
prices, milk is an economical food to purchase. 

Q. Now, as I understand it, you look on milk as a necessity for the 
young and old, a vital necessity? 

A. I do. 

Q. You believe that the human race cannot get along very well 

without it? 

A. I believe we will not achieve the maximum well being of which 
we are capable, unless dairy products are used in the diet. 



MILK SURVEY OF THE CITY OF ROCHESTER 



63 



THE FEEDING OF OLEOMARGARINE COMPARED WITH THE 

FEEDING OF BUTTER IN ONE OF ROCHESTER'S 

INSTITUTIONS 

In connection with the inquiry as to the milk supply of Rochester 
institutions, a most interesting piece of information was obtained from 
the Jewish Orphan Asylum by Mr. J. H. Larson, Secretary of the New 
York Milk Committee, who had charge of that branch of the Survey. 
This institution at the present tim? has a population of 29 children under 
16 years of age, and 10 adults. For a number of years the management 
has made a practice of regularly taking the weights and measuring the 
heights of children there and recording these weights and heights in the 
institution's records. The diet furnished to the children has been uni- 
formly good. The daily milk supply at present is 25 quarts, of which 8 
quarts are used for cooking, 14 for children and 3 for adults. 

During the period of 6 months previous to January 1st, 1917, there 
were no changes made in the diet of the children of this institution. They 
were receiving among other things regularly a sufficient quantity of 
butter. On January 1st, 1917, the management decided to substitute oleo- 
margarine in place of butter, and for the following six months, that is to 
say, from January 1st, 1917, to June 29th, 1917, the institution was sup- 
plied with oleomargarine instead of butter. At the end of June, the 
management became dissatisfied with the oleomargarine and decided to 
abandon its use and return to a regular butter supply. No other changes 
than these were made at any time in the diet or in the milk supply. 

Records of the weight of 10 children who were in the institution 
continuously during the periods above mentioned are given in Table 
No. 20 : 

TABLE No. 20 



Age. 


Weight. 


Height. 


Sex. 


o 
era 

CM 


CO 
CM 




2 

CO 


00 
ON 

CM 


00 
CM 




o 

(S) 


00 

ON 


00 
CM 


1. Boy 

2. Boy 

3. Boy 

4. Girl 

5. Boy 

6. Girl 

7. Boy 

8. Girl 

9. Girl 
10. Boy 


13A 

14A 

10 A 
9A 
lOA 
16 

14A 
11^ 


70.75 
90. 

52.75 
54.75 
63. 
70.75 
104.50 
99.50 
66. 


77.5 

94. 

56. 

52.75 

54.50 

67.50 

77.25 

104.25 
67.50 


88. 
102. 

58.50 

56.25 

60. 

73.75 

79.75 

72. 
116.50 

71.25 


84.75 
100.50 

54.25 

55. 

57.50 

71. 

78.50 

70.25 
123. 

66.25 


9L25 

60.25 
62.50 
65.50 
82. 
82.25 
75. 
132. 
77.37 


56.25 

59.50 

48.25 

50.25 

50. 

54.50 

54.75 

61.25 
54. 


58. 

61. 

48.75 

51.25 

5L25 

56. 

56.50 

54.25 

62.50 

55. 


60. 

62.75 

49.25 

51.75 

52. 

57. 

57. 

54.75 

63. 

55.25 


61.25 

50."' 

52.75 

53. 

58. 

57.50 

55.25 

63.50 

56.25 



64 



MILK SURVEY OF THE CITY OF ROCHESTER 



A tabulation of the weights of seven children whose records were 
complete for the five periods of six months each, is summarized below : 



Date. 
Dec. 31, 1916 
July 1, 1917 
Dec. 30, 1917 
Tune 29, 1918 
Dec. 27, 1918 



Total Weight of 
Seven Children. 
477.50 pounds 
501.25 pounds 
545.50 pounds 
536. pounds 
592.87 pounds 



Loss or Gain. 

+23.75 pounds 
+44.25 pounds 
— 9.50 pounds 
+ 56.87 pounds 



Butter or 
Oleomargarine 
Butter Period 
Butter Period 
Butter Period 
Oleomargarine Period 
Butter Period 



In the list of children there was one girl who was extremely large 
for her age and growing so rapidly that she would be called super- 
normal. Her increase in weight was not seriously interrupted by changes 
in diet. The results of these observations are graphically illustrated in 
the diagram on next page. 



MILK SURVEY OR THE CITY OF ROCHESTER 



65 



TABLE No. 21 

GROUP OF SEVEN NORMAL CHILDREN WHOSE RECORDS WERE 
COMPLETE FOR FIVE SIX-MONTHS PERIODS 



n 



Date 


12-31-16 


7-1-17 


12-30-17 


6-29-18 


12-27-18 


Total Weight 


477.50 


501.25 


545.50 


536 


592.87 



UNIT 



Gain 

Loss 



23.75 



44.25 



56.87 



9.50 



66 ■ -MILK SURVEY OF THE CITY OF ROCHESTER 



The same children's individual weights for the six months during 
which oleomargarine was fed, and for the six months when butter feed- 
ing was again resumed and oleomargarine feeding was abandoned, are 
shown by the curves in the following chart. It is noteworthy in this 
chart that with the single exception of the girl No. 9, who was super- 
normal in her growth, the other nine children all lost weight during the 
oleomargarine period. In the case of the super-normal girl, the curves 
show that her growth was slightly checked during this period. 



MILK SURVEY OF THE CITY OF ROCHESTER 



67 



TABLE No. 22 



No. Sex Age Weight 



9 


girl 


15 


104 


2 


boy 


15 


94 


1 


boy 


14 


77 


7 


boy 


11 


77 


8 


girl 


10 


72 



6 


girl 


10 


67 





boy 


12 


67 


5 


boy 


11 


54 


3 


boy 


9 


56 



nrl 



53 




Date 
Diet 



7-1-17 
Butter 



12-30-17 
Butter 



6-29-18 
Oleo 



12-27-18 
Butter 



68 MILK SURVEY OF THE CITY OF ROCHESTER 

While the number of these children was not very large, yet the uni- 
formity of results during the different periods makes it necessary to 
believe that some common cause existed for their losses and gains in 
weight. Since there were no apparent changes in diet with the exception 
of the substitution of oleomargarine for butter, it seems fair to conclude 
that the lack of butter in the diet was a large factor in the loss of weight 
during the period when oleomargarine was fed. 

As already pointed out by Professor McCollum and other observers, 
when rats are fed on cotton seed oil or sunflower seed oil or other vege- 
table oils which are contained in large quantities in some brands of oleo- 
margarine, they failed to grow and showed a stunted, unhealthy appear- 
ance, but when fed on butter fat in connection with other foods, they 
attained full growth and fine condition. 

Professor Henry C. Sherman, in his book entitled, "Chemistry of 
Food and Nutrition," 'shows the cost of 3,000 calories of energy when 
purchased in the form of various food products : 

Price Cost of 

Food. - Per Lb. 3,000 Calories. 

Clear Fat Pork $.20 $.16 

Bacon .25 .27 

Round Steak plus Fat .20 .88 

Round Steak Lean 20 L26 

Eggs (8 at 36c per doz.) .24 1.13 

Oysters (at 30c qt., 1 pt.) 15 1.90 

Milk— 1 pt. at 6c qt 03 ' .28 

Milk— 1 pt. at 8c qt 04 . .Z7 

Milk— 1 pt. at 10c qt .05 .46 

In reviewing these figures. Professor Sherman shows that people 
can afford to pay 20c per quart for milk if they can afford to pay 25c 
per pound for beef. The above statement is limited strictly to the food 
value of milk from the standpoint of calories. 

At Rochester prices for November, 1919, for the principal products 
in the above table the same would give the following figures : 

Price Cost of 
Food. Per Lb. 3,000 Calories. 

Fat Pork $ .40 $ .32 

Bacon .35 .38 

Steak, plus Fat 42 1.85 

Steak, Lean 40 2.52 

Eggs, 8 at 75c per doz . . 3.52 

Milk, 14c qt.—l pt 07 .65 

Professor M. J. Rosenau of Harvard University, states that the value 

of milk is as follows : 

f 2 large eggs, 

1 a large serving of lean meat, 
A glass of milk is about equal to. .. J 2 moderate-sized potatoes, 

I 5 tablespoonfuls of cooked cereal, 
I 3 tablespoonfuls of boiled rice, or 
[2 slices of bread. 



MILK SURVEY OF THE CITY OF ROCHESTER 69 

In testifying before the Mayor's Committee on Milk, New York, 
1917, Dr. L. Emmett Holt, one of the leading specialists in children's 
diseases, stated as follows : 

"For infants during the first year, a quart o£ milk a day is necessary. For the 
second year, a pint and a half. There is no food as economical at present prices 
for the nutrition of infants as milk. * * * fj^g habit of giving tea and coffee 
to 3'oung children is positively injurious. For children between the ages of two 
and six years, the daily ration of milk should be one pint per day as a minimum. 

"Dr. Lucas, of Berlin, found very greatly increased susceptibility to tubercu- 
losis as a result of under-feeding particularly among children. I should think that 
after six years of age up to twelve or thirteen years, a pint of milk a day ought to 
be allowed to all children." 

Professor Graham Lusk of Cornell University, in his testimony 
(before the same Committee), said: 

"We cannot expect a good community dietary if that community uses less than 
one-half quart of milk per capita per day. Unless there was that amoimt of milk, 
the dietary would be seriously one-sided. The milk has exceptional value as a food 
for growth due to the so-called vitamines. * * * It is the most important single 
food for adults. It is more economical to produce than meat. A man confined to 
a bread and meat diet will show deficiencies, while a man confined to a corres- 
ponding bread and milk diet will go on indefinitely. * * * A vegetable diet will 
always be improved by an addition of milk. If it was a question of one or the 
other, I think it important that a man have milk rather than meat." 

Professor Graham Lusk of Cornell University, in his testimony 
(before the same Committee), said: 

"No family of five should buy meat until they have bought at least three quarts 
of milk. Milk contains not only protein of animal origin, but also a very valuable 
fat which has specific properties for growth. It also contains in aqueous solution, 
materials which prevent the development of beri-beri and pellagra. Milk is the 
cheapest form of protein j^ou can get. It is the most complete and sufficient food 
that can be had. Around the dairy farms centers the proper nutrition of a nation." 

If the quantity of milk recommended by Professor Sherman and 
Lusk were used by the consumers of Rochester, the city would consume 
the following amounts daily : 

Quantity 
Age. Population. Per Person. Total. 

Under 1 year 9,854 1 quart 9,854 quarts 

1 to 6 vears 65,720 54" 49,290 " 

7 to 16' years 70,119 1/2 " 35,059 " 

Over 16 years 144,307 H" 36,076 " 

290,000 130,279 " 

\ 

The present average supply is estimated at 90,000 quarts of milk 

daily. The figures in the above .table indicate therefore that the children 



70 MILK SURVEY OF THE CITY OF ROCHESTER 

and adults of Rochester should use at least 40,000 quarts more milk than 
they now consume. The milk recommended for children under one year 
if not consumed directly by the child should be consumed by nursing 
mothers if the child is to receive proper nourishment. The latest re- 
searches of Professor McCollum, as testified to by him, indicate that 
every person can consume daily one quart of milk or its equivalent in 
other dairy products to the advantage of their health and strength. These 
other products refer to butter, cheese, condensed milk, cream, etc. If 
Rochester should follow the advice of Professor McCollum it would 
therefore consume daily 290,000 quarts of milk, or its equivalent in dairy 
products. 

Dr. John R. Williams of Rochester, in his testimony at a public 
hearing held in the City Hall on August 13, 1919, made the following 
statements regarding the food value of milk : 

I would like to introduce a photograph here in evidence, if accept- 
able, showing the value of milk for children. I have here a photograph 
of six children ; three of them have been fed or liked milk and were fed 
liberally on milk from early infancy right up to the present time ; the 
other three were not fed on milk, they took a dislike for it and were not 
encouraged to use milk, and the result is that the children not fed on 
milk show a lack of vitality and a lack of growth, which was very 
strongly absent with milk-fed children. The parents of the children who 
were fed on milk are smaller than those of the children not fed on milk 
and these children are the same age by pairs. 

I found a large number of children were using condensed milk in 
my study of conditions in Rochester. I appealed to the wholesale groc- 
ers of Rochester and they were able to tell me — there was practically 
no condensed milk imported into Rochester by jobbers that practically all 
the condensed milk sold here was sold through wholesale grocers, and 
they gave me access to their figures, and they told me that condensed 
milk was sold in Rochester to the extent of two million cans a year, and 
I found a large number of people were using condensed milk. 

Q. What do you say about the use of condensed milk, doctor? 

A. I think it is much inferior to cow's milk. 

Q. In process, it is sweetened? 

A. Yes, I think its food value is much inferior; I think it lacks 
the essential properties of growth production. 



VII 

RELATION OF MILK TO INFANT MORTALITY 

Much has been written upon this subject, and the literature is so 
full of material prepared by the leading medical and public health ex- 
perts of the world that the subject is familiar to everyone who has given 
any attention to the relation of public milk supplies to the public health. 

The authorities are unanimous in agreeing that there is a close rela- 
tionship between infant mortality and the quality of the milk used by any 
city. It will be sufficient for the purposes of this Survey to quote the 
testimony of Mr. John H. Larson, Secretary of the New York Milk 
Committee, who, because of his position and the work of that committee, 
has for a number of years given special attention to this subject : 

John H. Larson, produced as a witness on behalf of the Committee, 
first being duly sworn, examined by Dr. North, testified: 

Q. Mr. Larson, will you state briefly your previous experience in 
connection with milk investigations and your present position ? 

A. I am the Secretary of the New York Milk Committee and have 
been connected with that organization since 1912. 

Q. Will you state what that organization is? 

A. It is an organization to promote the welfare of children in New 
York City and throughout the country by encouraging a safe milk supply 
for the children, and other methods of preventing infant mortality. 

Q. Will you state briefly what that organization has done since you 
have occupied the position of Secretary, before and since? 

A. I think I better begin at the beginning. The New York Milk 
Committee was originally organized because the milk supply of New York 
City was not deemed fit for infant feeding, for the feeding of infants 
who were not breast fed. The primary object was to educate the public 
to demand a supply that was safe for their children. In order to do this 
we started two things ; one was the infant milk stations in New York 
City; they were conducted up until and including 1911, when they wei'e 
taken over by the city. 

Q. Are those stations still operating? 

Yes, the City of New York is operating sixty of them today. 
They are still selling milk in bottles to the mothers of those 



A 

Q 

babies ? 
A 
Q 



Yes. 

How much less does that milk cost than the milk delivered to 
the home? 

A. Two cents less than Grade A pasteurized delivered to the home, 
or ten cents less than certified. 



72 MILK SURVEY OF THE CITY OF ROCHESTER 

Q. Do you know whether that milk has been sold from these stores 
at a loss ? 

A. The milk stations? 

Q. Yes. 

A. No, it has not. 

Q. Is it not true that the city pays part of that expense? 

A. * * * the milk is dispensed in each milk station for which 
the city pays the rent. 

Q. The city pays the rent of the stores ? 

A. All the overhead charges. 

Q. For light and heat? • 

A. Yes. 

Q. And janitor services? 

A. Yes. 

Q. Then these charges are contributed by the city? 

A. The city contributes to the expense of dispensing that milk in 
order that it may have an inducement to get the mother to come to the 
station ; it is a paying proposition for Father Knickerbocker. 

By Mr. Fuller: 

Q. All these expenses are paid by the city ? 

A. I do not believe that the company loses money on its contract. 

Q. The point is here; the city pays certain overhead charges? 

A. No. The city has its milk station and it tells the milk companies 
of New York City, "We want milk dispensed at these stations; what is 
your bid for dispensing it, Grade A pasteurized milk?" And the com- 
pany send in their bid; one of the companies gets the contract, and the 
city says, "We put at your disposal this station to dispense your milk; 
we will not charge you any rent, or for light or heat or janitor service; 
the reason we do that is having milk on sale in the station for the babies 
is an inducement for the mother to come to the station for instructions 
for the infants." 

O. What does the company furnish milk for? 

A. Fifteen cents at the present time. 

By Dr. North: 

Q. They charge fifteen cents also, do they not, to the mothers ? 

A. It is not delivered at the station ; it is delivered to the mother at 
the station. 

Q. The mother pays fifteen cents a quart? 

A. Yes. 

Q. Do you know what it would cost if the station charges were 
added to that, to sell it through those stores? 

A. No, I do not. 



MILK SURVEY OF THE CITY OF ROCHESTER 73 

Q. Have you got figures to show what it cost the city to operate 
those stations? 

A. I have got figures to show what the station operation costs, yes, 
but they are grouped ; do you want that now ? 

O. Perhaps we might as well have it now as long as you are on that 
subject? 

A. Let me give you this first, getting back to the cost of the milk 
to the mothers; in 1911, 1912, 1913, 1914, 1915 and 1916, it was 8 cents 

a quart. 

Mr. Pierce: Grade A pasteurized? 

Witness: Yes. 

In 1917 it started with 9 cents, 9>^, 10>^, 12 and 12^^. In 1918 it 
started with 13^^; went down to 12, 12>^, 13, 15 and 16. In 1919 it 
started with 14 cents, and today it is 15 cents a quart. 

Q. Those changes were due to changes in the market price of 
milk? 

A. Yes. 

O. What did the New York Milk Committee, which you represent, 
have to do with the establishment of these stations ? 

A. They started the milk station experiment in New York City. 

Q. How many stations did they establish of their own ? 

A. Thirty-one. 

Q. Before the city took them over? 

A. Yes, and they added to them since until now they have sixty. 

Q. About how many babies a day are fed at these stations? 

A. In 1918 there were 46,182 individual babies. 

By Mr. Pierce: 

Q. A quart to a child? 

A. In 1918 there were 5,815,425 quarts of milk dispensed. 

Q. Have you analyzed that to show what is given to a child ? 

A. Per capita daily? No, I have not; it does not mean that each 
one of those babies had a quart of milk a day during the year, but there 
were that many individual babies registered at the stations. 

By Dr. North: 

O. Do these stations operate the year around? 

A. They do, yes. 

Q. Are they so located that children in any part of the city can get 
milk there? 

A. No, I would not say that; they are located according to the 
need of the community. If you have a community where there are ten 
children that need milk stations very badly you would not prefer that 
community in locating a station to a community that had a thousand 



74 MILK SURVEY OF THE CITY OF ROCHESTER 

children needing it very badly. Milk stations favor congested sections 
where the baby population need milk station service. 

Q. That is, the stations are located in the most congested districts? 

A. Yes, in those congested districts the milk stations are always 
within walking distance of any mother in the district. 

O. Now, were the Milk Committee's expectations realized in the 
establishment of these stations by any marked effect on infant mortality? 

A. Yes, they were. 

Q. Suppose you go into that very fully? 

A. Perhaps we can cover that very briefly by giving the infant mor- 
tality rate. The rate in New York City for 1906-1910, that is before 
the milk station period, was 135.8; that is, out of every thousand babies 
135 died under one year of age; 1911-1915, you recall that the milk 
station drive was in 1911, the infant mortality rate was 102.2 per thou- 
sand ; in 1916 it was 93.1 ; in 1917, 88.8 ; in 1918, 91.7. The milk stations 
in New York City have helped reduce the infant mortality rate since 1910 
from 135 to 91. 

By Mr. Pierce: 

Q. How much do these stations cost the city per year? 

A. The milk stations today are costing the city, each station in 
round numbers, $3,000 a year; that includes nursing, cleaning, medical 
and immediate supervision, but does not include the pro rata distribution 
of the Health Commissioner's salary nor the salary of the Chief Director 
of the Bureau of Child Hygiene. 

By Mr. North: 

Q. Is that the average cost? 

A. $3,000.00 is the average cost. A station of two hundred babies 
can get along with one nurse and a part time doctor; a station of six 
hundred babies will require a nurse, two assistant nurses and a doctor, 
that has at least two or three clinics a week. 

Q. The salaries of those nurses and doctors are all paid by the city? 

A. Yes. 

O. Are they open all day or only in the morning? 

A. They are generally open only in the morning and the nurses are 
out in the field visiting mothers and babies in the afternoon, until late 
in the afternoon when they come to the station and fill out their records. 

Q. Do the mothers bring the babies to the stations? 

A. Yes, for the baby clinics. 

Q. Have you got a compilation showing the work that has been 
performed by these stations and the number of babies that have been 
taken care of by each station? 

A. I have a very complete cost sheet here of our 31 stations; of 
course, that does not apply today except in proportion as to .what costs 



MILK SURVEY OF THE CITY OF ROCHESTER 75 

were at that time. I think for the benefit of the record it might be well 
to put in, that during September, 1911, our 31 stations cost $9,227.35. It 
does not show here the number of babies, but the number of babies were 
31,128, I think, something like that, but the cost per baby was .0634, 
that is, it is six and one-third cents a day was the actual cost to us. 

Q. To take care of one baby? 

A. ' One baby for one day. 

Q. Is there any way in New York City that the infants and chil- 
dren can get milk as cheaply as they can get it at the milk station? 

A. No, there is not. 

Q. There is no way? 

A. No. 

O. They are getting the cheapest milk there that they can get of 
that grade ? 

A. For the quality. May I add there that the charge is sometimes 
made that the milk dealers are killing the babies because of the high 
price of milk. My personal opinion is that milk dealers killed the babies 
of New York City when they were selling milk at 4 cents a quart. Dur- 
ing those times the infant mortality rate was over 200 per thousand. 

Q. How do you account for that ? 

A. That milk cannot be produced and sold and delivered to the 
consumer in a sanitary character and was not so sold and delivered when 
milk retailed at four cents a quart. The result was that milk contributed, 
because of its unsanitary character, to the high infant mortality rate. 
New York City has the best, or as good a milk supply as any other city in 
the world, and has the least infant mortality rate of any large city in the 
world. It is all because of the fact that the people of New York City 
have been educated to realize the value of a safe milk supply for infants' 
feeding. 

Q. You consider the quality of the milk has got to be taken into 
consideration in feeding infants and children as well as the price? 

A. I think the quality of the milk comes far before the price. Price 
has nothing to do with it if the quality is not there. 

O. What kind of milk were the people buying for their infants and 
children before these stations were established ? 

A. Milk that would not to-day, according to all the recommenda- 
tions of the National Commission on Milk Standards, come up to Grade 
C pasteurized. 

Q. The lowest grade of milk sold in the city? 

A. Yes. 

Q. Where were they getting it ? 

A. There were a lot of small dealers in the city, a lot of dairy 



76 MILK SURVEY OF THE CITY OF R OCHESTER 

farmers surrounding the city hauling their milk in, or in most cases the 
producer was the milk dealer as well. 

Q. Was this milk delivered to the homes of the people or did they 
go to the stores to get it? 

A. They went to the stores to get it. 

O. Does New York City permit the sale of dipped milk at the 
present time? 

A. Unfortunately, yes. 

Q. Is that dispensed in grocery stores ? 

A. Yes. 

Q. Has the Milk Committee disapproved of the distribution or dis- 
pensing of dipped milk ? 

A. We disapprove of the dispensing of dipped milk. Milk cannot 
be safely handled except in a single container. 

O. Has the Milk Committee any evidence that the children that 
have been fed upon dipped milk from grocery stores are any worse off 
than those that have been given bottled milk from the infant milk sta- 
tions, or that have been fed upon good bottled milk? 

A. I have not just the figures with me, Dr. North, but my impres- 
sion is that the baby death rate among the babies fed at our milk stations 
on Homer milk was 57 per cent, lower than the baby death rate through- 
out our city fed on good and bad milk. 

Q. Has the Milk Committee in its work taken into consideration 
the records made by other investigators in New York of the mortality 
of children fed on loose dipped milk from grocery stores as compared 
with the mortality of children fed on good bottled milk, for example, 
such work as was done by Dr. Park and Dr. Holt? 

A. Yes, it has those records. 

O. Now, will you tell us something about the effect or influence on 
infant mortality of this system of infant feeding. I think you have some 
mortality records to show us there, of the results of infant feeding? 

A. In 1913, 54.8% of the babies at the milk stations were breast 
fed. In 1918, 67% were breast fed. In 1913, 19.6% of the babies were 
mixed fed. In 1918, 17% were mixed fed. In 1913, 25.5% were bottle 
fed. In 1918, 16% were bottle fed. It shows that the educational propa- 
ganda for the benefit of the mother, through the milk station, has induced 
the mothers of New York to increasingly nurse their babies at the breast, 
and the mixed feeding percentage of mothers has decreased, and the 
bottle fed percentage of mothers has decreased. Now, what is the pur- 
pose of that? In our work we found that of the babies registered at 
our stations who died, 6.5% were breast fed, that is, the infant mortality 
rate per thousand breast fed babies registered at our stations was 6 5; 



MILK SURVEY OF THE CITY OF ROCHESTER 11 



that is, this much out of a thousand, or 11 out of two thousand died. Of 
the mixed fed babies, 24.2 per thousand died. Of the babies that were 
bottle fed, 30.7 per thousand died. Your mortality problem limits itself 
to the infant that is artificially fed. The ratio — do you want this put in 
record ? 

Q. Yes, sir? 

A. The ratio of deaths of these three groups of feeding are as 
follows : For every breast fed baby, four mixed fed babies die ; for 
every breast fed baby, I mean, every breast fed baby that dies, four mixed 
fed babies die ; for every breast fed baby that dies, five bottle fed babies 
die. You have ten babies who die; one of them is breast fed; four are 
breast and bottle fed, and five are bottle fed. If any community will 
realize and understand that fact, that in itself will do a whole lot to pre- 
vent this unnecessary loss of infant life. 

Q. Do these stations sell milk for the mothers themselves to drink ? 

A. They do. I am under the impression that a very great per 
centage of the milk supply that goes through the stations in New York 
City goes to the mother rather than the baby. 

Q. Do you consider that the establishment of those infant milk sta- 
tions in New York City is a success? 

A. I do. 

O. And do you think that every city should have such stations? 

A. The problem is a problem of ignorance. Infant mortality per 
se is not a milk station problem. Milk stations will prevent unnecessary 
loss of infant life more quickly than any other agent that can be used. 
As I said before, you have got to have that milk as a bait to get the op- 
portunity to educate the mother in the care of her infant and herself. 

O. Supposing you consider the milk as a commodity offered for 
sale to the mothers of infants in the congested districts, would you say 
that the City of New York is justified in paying the cost to maintain 
these stations so that this milk can be sold at the lowest price to the in- 
fants and mothers ? 

A. I would, yes. 

Q. You think the city is justified in paying that charge? 

A. I think it is a mighty good investment for a city. 

Q. Now, can you show us something about the mortality under one 
month ? 

A. The actual condition is this : This chart shows what happens 
to one thousand expectant mothers in New York City. Assuming that 
you have a thousand mothers that are pregnant and you have control of 
them until one year after the birth of their babies, this is your result: 
Out of that thousand, 4.7 mothers die from causes due to pregnancy and 



7B, MILK SURVEY OF THE CITY OF ROCHESTER 

confinement; 43.4 of those mothers give birth to still born babies, their 
babies are dead before they are born; 35.2 of those mothers lose their 
live born babies through death during the first month of birth. Ignoring 
the fact that five of the mothers die and take your potential baby lives 
from conception until one month after birth and you divide them into 
three groups of those who die ; one-third are born dead ; the second third 
die during the first month after birth, and the last third die during the 
remaining eleven months of the first year. Two-thirds of those potential 
lives are gone before there is any possible chance of them availing them- 
selves of the milk station machinery. That is for New York City. 

Mr. Pierce: That is, two-thirds of those who die? 
The Witness: Yes. 

Q. Then in our figures that we have been considering on infant 
hiortality which has been the cause for this milk agitation, two-thirds of 
the children who die have no relation at all to the milk agitation ? 

A. Not in the least. 

O. They die before the end of the first month? 

A. They do. 

Q. Then, only one-third of the number of children that have been 
quoted so often as the reason for the milk agitation really have anything 
to do with the milk supply? ' • . 

A. Just one-third, yes. 

O. Now, have you some more figures on that point? 

A. I have the same figures for the City of Rochester that I have 
just quoted for New York City. This is from the vital statistics of 
Rochester for 1917: Out of one thousand expectant mothers in Roch- 
ester that year, 4.6 died from causes due to pregnancy and confinement • 
39.0 gave birth to dead babies ; 40.9 lost their babies through death during 
the first month after birth. You have the grouping in three groups, the 
same here as in New York City. In New York City the line goes down 
gradually from the second month down ; in Rochester it does not do that ; 
the second month is lower than the third month, and the fourth month is 
lower than the third or fifth month; this is pro-rated from the sixth 
month on, because my figures do not have the exact distribution, but it 
shows graphically what the situation is. 

O. That is to say, in Rochester one-third of the babies w6o die 
under one year of age are babies who would be affected by the milk 
supply ? 

A. Yes. 

Q. And two-thirds are not affected? 

A. Are not affected. 

A. The problem, then, in infant mortality does not concern itself 



MILK SURVEY OF THE CITY OF ROCHESTER 79 



only with that last and third group of babies that die ; it concerns itself 
far more with the two previous groups. The New York Milk Committee 
realized that fact when it started the milk stations in New York City, 
but it also realized that it could not go back so far as to reach with 
medical nursing and care the expectant mother unless it had the milk 
station with its milk as a bait for getting the mother with the baby. That 
■was the third group. Consequently, in connection with the milk stations 
we started a program of providing pre-natal care for expectant mothers ; 
the mother took the milk, brought the baby to the milk station and the 
nurse found out she was pregnant and she would get her registered as 
an expectant mother and she would be provided with care during het 
pregnancy and for one month after her confinement. That is the outline 
of the work. What did that work accomplish? It means that the group 
of mothers which now, I think, run between seven and ten thousand on 
our records, it means that the maternal deaths of our mothers receiving 
pre-natal care, show a reduction of 69 per cent, over maternal deaths 
throughout the city as well. 

O. That is the mothers who patronize those stations? 
A. Yes, and who receive pre-natal care. It means that the records 
show a reduction of 22 per cent, in still births; it shows a reduction of 
28% in the deaths under one month. All told, it caused a reduction of 
maternal deaths of 69 per cent. ; of still born babies, 22 per cent. ; of 
deaths under one month of 28 per cent. 

• The position occupied by the City of Rochester among American 
cities in the number of infants under one year of age who die annually 
has often been thought to be a position of leadership ; that is to say, that 
Rochester, if not at the top, is near the top of the list because of the ex- 
ceedingly small death rate of children under one year. 

Because of this impression, it will be useful to refer to the annual 
report of the New York Milk Committee which shows the infant death 
rate, under one year, in all of the large cities of the United States. In 
their report of the figures for the calendar year 1918, the position 
occupied by the principal American cities and the death rate of infants 
under one year is shown. Extracts from this report, showing exactly 
the position which Rochester now occupies, are given in the tabulation 
below, which shows that Rochester is 54th in the list of cities from 
which statistics were compiled for 1918 by the New York Milk 
Committee : 



80 MILK SURVEY OF THE CITY OF ROCHESTER 

INFANT MORTALITY STATISTICS 

For the Year 1918 

Deaths 
Per 1,000 Infants 
City. Under 1 Year of Age. 

1. Brookljne, Mass. 35.4 

2. Madison, Wis 38.1 

3. Pasadena, Cal 43.8 

4. East Orange, N. J 53.0 

5. Berkeley, Cal 56.5 

6. San Francisco, Cal 57.2 

7. Maiden, Mass 60.2 

8. Everett, Mass 61.6 

9. Alameda, Cal 62.2 

10. Salt Lake City, Utah 63.3 

11. Boise, Ohio 63.4 

12. Seattle, Wash 63.4 

13. Chelsea, Mass 65.8 

14. Newport, R. 1 65.8 

15. Newton, Mass. 66.6 

16. Quincy, Mass 67.2 

17. Lima, Ohio 69.2 

18. Grand Rapids, Mich 70.8 

19. Portland, Ore 71.7 

20. Evansville, 111 72.2 

21. Reno, Nev. ...._ 72.3 

22. Minneapolis, Minn 72.3 

23. Oakland, Cal 72.7 

24. Haverhill, Masss 73.0 

25. Mt. Vernon, N. Y 73.6 

26. San Jose, Cal 76.5 

27. Lynn, Mass 76.8 

-28. Canton, Ohio 77.0 

29. Los Angeles, Cal 77.4 

30. Decatur, 111 78.1 

31. Fort Wayne, Ind 78.7 

32. Spokane, Wash 79.4 

33. Joplin, Mo 80.6 

34. Wichita, Kan 81.3 

35. Lincoln, Neb 81.8 

36. Stamford, Conn 82.8 

37. Concord, N. H 83.4 

38. Poughkeepsie, N. Y 83.8 

39. Dayton, Ohio 84.0 

40. Duluth, Minn 86.0 

41. Galveston, Tex 86.1 

42. St. Paul, Minn 86.4 

43. Jamestown, N. Y 86.6 

44. Amsterdam, N. Y 86.9 

45. Quincy, 111 87.0 

46. Springfield, Ohio 87.2 

47. Peoria, 111 89.3 

48. New Haven, Conn 89.5 

49. Jackson, Mich 90.2 

50. San Diego, Cal 91.5 

51. Sacramento, Cal 91.6 

52. New York, N. Y 91.7 

53. Harrisburg, Pa 92.1 

54. Rochester, N. Y. 93.4 



VIII 

COST OF PRODUCING ROCHESTER MILK 

The determination of the cost of milk production presents many 
serious difficulties. The majority of dairy farmers do not keep cost 
accounts. On the other hand, there is no class of business men who 
carries so many business transactions in his head, or can give more 
accurately from memory the history of financial transactions than the 
dairy farmer. The different sizes of dairy farms, the different condi- 
tions of location and soil, the methods of feeding, sizes of herds, amount 
of labor employed, vary to so great a degree that the figures for each farm 
differ to a considerable extent from the figures obtained from other farms 
in the list. An entire year's accounting must be obtained from each 
farm investigated if the figures are to fairly represent the a^'erage cost, 
for the reason that seasonal changes greatly affect volume of milk pro- 
duced and the cost of feed. 

In approaching the organization of this work, it was recognized that 
consideration should be given to the methods of investigation previously 
used. It was believed by the Director of the Survey that the best insur- 
ance that could be given to the correctness of the methods adopted for 
the present inquiry would be obtained through consultation with Professor 
G. F. Warren, Professor of Farm Management, at Cornell University, 
because he is recognized as the highest authority in this country on farm 
economics. At the request of the Director of the Survey, Professor 
Warren came to Rochester and furnished copies of the report blanks 
used by him in his own inquiries of the cost of milk production. He also 
designated some of his own assistants to furnish further advice on this 
subject. H. E. Babcock, State Director of Farm Bureaus, volunteered to 
secure for the Director of the Survey men who had been engaged in 
country farm bureau work and had had extensive experience in compiling 
farm cost accounts. As a result of this co-operation, four inspectors 
were employed who could qualify in an unusual manner for work of this 
character. These men were in the field for an average period of nine 
weeks, and during that entire time were engaged in making detailed 
studies in consultation with dairy farmers as to their cost items. 

The preparation of the report blanks used by them was done after 
consultation with E. G. Misner, Professor of Farm Management at 
Cornell University, who assisted in preparing a modification of former 
report blanks adapted especially to the work proposed. Mr. C. P. Clark, 
who had had considerable experience in supervising investigations of 
cost accounts and statistical work, was made supervisor of the entire 
investigation of the cost of milk production. 



82 MILK SURVEY OF THE CITY OF ROCHESTER 

It is believed consequently that the methods of obtaining the in- 
formation, and the personnel of the investigating staff, was as reliable 
as it was possible to obtain for such a survey as this. During the period 
of nine weeks when the men were in the field, they visited every dairy 
district from which Rochester obtains its milk supply. The number of 
districts visited and the number of dairy farms in each are shown in the 
table below : 

District. Number of Farms. 

Bliss 24 

Wayne and Livingston Counties 33 

Monroe County 84 

Total 141 

The general summary of the information obtained from these farm.s 
is given in Table No. 23 : 

TABLE No. 23 

GENERAL DATA FROM 141 FARMS 

Number of farms 141 

Number of cows 2,314 

Total milk produced (pounds) 14,654,115 

Total milk sold wholesale (pounds) 14,060,306 

Total milk sold wholesale (quarts) 6,539,677 

Percent of Rochester supply furnished by 141 farms 21% 

(Based on average consumption of 85,000 quarts per day.) 

Total expenses $659,958.06 

Returns other than wholesale milk 69,911.36 

Net costs $590,046.70 

Total receipts for wholesale milk 471,729.10 

Total loss $118,317.60 

Acres per farm 131 

Value per acre $158 

Acres of pasture per farm 28 

Value of pasture per acre $72 

Average number of cows 16.4 

Value of cows per head $126 

Production per cow (pounds) 6,333 

It is believed that the location of the farms was such that they fairly 
represent the character of the farms supplying milk to the City of Roch- 
ester. Information obtained from the milk distributors and from the 
Department of Health indicate that the number of dairy farms supply- 
ing Rochester milk varies from 700 to 800. The best figure obtainable 
by this survey is 778 dairy farms. 

The 141 farms from which cost accounts were obtained are believed 
to be a sufficient number to furnish accurately figures showing the cost 
of producing milk on the entire list of farms, because they were not 



MILK SURVEY OF THE CITY OF ROCHESTER 



83 



only located in every dairy district, but represented every type of dairy 
farm, large and small. The farms were not selected, but were taken just 
as they came on the roads on which the inspectors traveled. 

The cost of milk production on all of the farms has been compiled, 
and the figures added together to show the cost of producing milk per 
100 pounds and per quart. This summary is given in Table No. 24 : 



TABLE No. 24 
SUMMARY OF COSTS OF PRODUCTION ON 141 
May 1, 1918, to May 1, 1919 

Per Cwt. 

Depreciation on cows .0756 

Interest on cows at 6% 1241 

Grain and other concentrates 1.0721 

Succulent feed 6805 

Hay and other dry forage 6048 

Total feed except pasture 2.3574 

Interest on feed and supplies at 6% 0417 

Pasture 2424 

Bedding 1651 

Human labor 1.2116 

Horse labor 0975 

Use of buildings .1422 

Use of equipment 0791 

Bull service 0351 

Miscellaneous costs 1219 

Total cost 4.6937 

Returns except wholesale milk .4972 

Net cost (difference) 4.1965 

Price received 3.3550 

LOSS 8415 



FARMS 



PerQt. 
.00163 
.00267 

.02305 
.01463 
.01300 



.05068 

.00090 
.00521 
.00355 
.02605 
.00210 
.00306 
.00170 
.00075 
.00262 

.10092 

.01069 

.09023 

.07214 

.01809 



The significance of Table No. 24 is that the actual cost on all of 
the 141 farms visited for producing 100 pounds of milk was $4.19, or 
$ .09 per quart. The price received for this milk during the year was 
only $3.35 per 100 pounds, or $ .072 per quart, showing a net loss to 
these 141 milk producers of $ .84 per 100 pounds, or $ .018 per quart. 

The figures in this summary are obtained from the details in the 
report blanks and can be best understood by arranging these details in a 
number of ways, indicated by the tabulations which follow. In Table 
No. 25 is shown the total quantity of feed and of labor required by each 
cow per year, and per 100 pounds of milk : 



84 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. 25 
QUANTITY OF FEED AND LABOR REQUIRED 

Per Cow. Per Cwt. of Milk. 

Grain and other concentrates 2,635 lbs. 41.6 lbs 

Succulent feed 10,493 lbs. 165.7 lbs. 

Hay and other dry forage 3,769 lbs. 59.5 lbs. 

Human labor 211 hrs. 3.33 hrs. 

The number of cows on the farms, their value at the beginning of the 
year, May 1st, 1918, and the number of cows purchased, the heifers that 
became cows, and the value at the end of the year are shown in Table 
No. 26 : 



TABLE No. 26 

INVENTORIES, PURCHASES AND SALES OF COWS 
BEGINNING OF YEAR 

Number Price Total Value 

Cows on hand May 1, 1918 2,282 $123.21 $281,160 

Cows purchased 673 120.05 80,792 

Heifers that became cows 124 101.98 12,645 

Total $374,597 

END OF YEAR 

Number Price Total Value 

Cows on hand May 1, 1919 2,306 $130.21 $300,275 

Cows sold 737 86.06 63,427 

Cows died 34 

Cow hides 22 11.84 260.50 

Total $363,962.50 

Value at beginning of year, plus purchases, plus heifers that became cows $374,597.00 
Value at end of year, plus sales 363,962.50 

Depreciation (difference) $ 10,634.50 

Average inventory of cows — Number. 2,314 

Average inventory of cows — Total value $290,841 .00 

Value per head 125.69 

From these figures it appears that the depreciation was $10,634.50 
on all the farms for the year covered by the inquiry. This depreciation 
is the amount of money required for replacement, or to make up for 
losses through the sale or death of animals, and the cost of keeping the 
herds up to their full production. The inventory showed an average of 
2,314 cows, and the value placed on these animals by the owners was 
$290,841.00, or $125.69 per head. These figures differ from the total 
value at the beginning and at the end of the year because of the shifting 
of cows during the year, and because of the buying of fresh cows and 
the selling of dry ones. 



MILK SURVEY OF THE CITY OF ROCHESTER 85 

From a business standpoint it is of some interest to know the amount 
of money invested in land and buildings on these farms. The number of 
acres used for dairy purposes cannot be accurately separated from the 
total number of acres in the farms, therefore, the total acres in these 
farms is the figure given. The investment in land and buildings is shown 
in Table No. 27 : 

TABLE No. 21 
INVESTMENT IN LAND, BUILDINGS, ETC. 

Acres in farms 18,515.5 

Average value per acre $158 

Total value of farms $2,926,828 

Acres of pasture 3,490.5 

Value of pasture per acre %1Z 

Total value of pa.sture $254,025 

Acres of pasture rented in addition to the above 470 

Value of buildings used by caUle $290,058 

Value of equipment used by cows 41 ,956.23 

Value of average feed and supplies on hand for cows. . 97,652 

The totals of the amount of grain and other concentrates fed are 
shown in Table No. 28: 

TABLE No. 28 
GRAIN AND OTHER CONCENTRATES 

Per Cent, of 

Total Price Total 

Amount. Pounds. Per Ton. Value. 

Home grown grain 19% 1,176,094 $48.02 $28,240.06 

Wet brewers' grain (reduced , to dry basis) 17% 1,024,159 24.65 12,623.80 

Other purchased grains ." 64% 3,898,253 56.38 109,883.15 

Total 6,098,506 $49.44 $150,747.01 

It is important to note that 19% of the grain used was home grown. 
The price per ton on the home grown grain was based on the market 
price of such grains, less the cost of marketing. The wet brewers' grains 
were used to an unusual extent on some of these farms. The quantity 
was reduced to a dry basis in order that the amount and price might be 
fairly compared with the other grains fed. The low cost per ton of 
these brewers' grains is offset to a considerable extent by the increased 
cost of hauling over the cost of hauling other purchased grains. In re- 
ducing the wet grains to dry grains, the basis used was 65 lbs. of wet 
grains per bushel, and J4 lb. of dry matter to each lb. of wet grains. 

The estimates obtained for succulent feeds, hay and other dry 
forage, were based on the quantities used according to the best recollec- 
tions of the producers, and on the prices per ton at which these products 
are commonly rated. The figures for succulent feed are given in Table 
No. 29, and for hay and other dry forage in Table No. 30 : 



86 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. 29 

SUCCULENT FEED 

Per Cent, of 

Total Amount. Tons. 

Corn silage 83% 10,066 

Soiling crops, roots, etc 17% 2,074 

Total 12,140 



Price 


Total . 


Per Ton. 


Value. 


$8.11 


$81,596.00 


6.79 


14,077.00 



$7.88 



$95,673.00 



TABLE No. 30 

HAY AND OTHER DRY FORAGE 

Per Cent, of Price Total 

Total Amount. Tons. Per Ton. ■ Value. 

Hay and Alfalfa 76% 3,328 $22.78 $75,803.68 

Corn Stover 17% 741 8.88 6,578.50 

Straw, Bean Pods, etc 1% 292 9.08 2,650.50 

Total 4,361 $19.50 $85,032.68 

The labor of the operator or owner and other unpaid labor is charged 
on the basis of the estimates furnished by the operators. The figures for 
paid labor are made up from the actual wages paid plus the cost of board, 
and the number of hours the labor was employed. The rates per hour, 
when one considers the wages paid in other lines of industry, are certainly 
not too high. As a matter of fact, the average loss sustained of $ .8415 
per 100 pounds subtracted from the total labor charge of $1.2116 in 
Table No. 24 shows that all the labor actually received after paying all 
other costs was only $ .11 per hour for their labor instead of $ .349 as 
charged in Table No. 31 : 

TABLE No. 31 

- HUMAN LABOR 

Per Cent, of Rate Total 

Total Labor. Hours. Per Hour. Value. 

Operator 51%o 246,909 $.416 $102,606.44 

Other unpaid labor 13% 65,443 .280 18,338.03 

Paid labor 36% 176,134 .281 49,413.52 

Total 488,486 $ .349 $170,357.99 

The total value of the operators' labor, as shown in Table No. 9, 
was $102,606.44. The value of the other unpaid labor was $18,338.03, 
making a total for unpaid labor of $120,944.47. The total losses as shown 
in Table No. 23, were $118,317.60. This assumes that all labor was paid. 
If the unpaid labor amounting to $120,944.47 was not included in the ex- 
penses, it would leave to the farmer a profit of $2,626.87 to apply to the 
wages of the unpaid labor. The number of hours the unpaid labor was 
employed was 312,352, as shown in Table No. 31. If only $2,626.87 was 
available to pay for this, the unpaid labor actually received $ .0084 per 



MILK SURVEY OF THE CITY OF ROCHESTER 87 

hour, or less than Ic per hour. If the labor of the farmer's wife and 
children was not charged for, and all of the $2,626.87 above other ex- 
penses, including paid labor, remained for the operators themselves, each 
operator would have received $ .0106 per hour for his own labor. 

TABLE No. 32 

RETURNS EXCEPT MILK SOLD WHOLESALE 

Amount. Price. Value. 

Appreciation on Cows 

Milk used by Families 160,223 qts. $.071 $11,374.82 

Milk Retailed, used for butter and fed to stock 118,869 qts. .070 8,268.43 

Manure recovered 20,612 tons 1.77 36,429.00 

Feed bags . . . . 627.00 

Calves born (value at birth) 1,831 7.22 13,211.75 

Total $69,911.00 

Table No. 32 shows the receipts from other sources than milk. If 
there were appreciation or increased value in cows it would appear in 
this list of items. It is set down as one of the items, but no figures are 
placed opposite this item, for the reason that there was no appreciation on 
the farms as a whole. 

The milk used by the farmers' families is charged for at the average 
League price for the year. The slight difference between this figure and 
the figure actually received, as shown in Table No. 24, is more than made 
up by the cost of hauling milk to the shipping station for the milk which 
was shipped from the farm. Some small quantities of milk were retailed 
by farmers themselves, and these amounts are included in the receipts. 

The producing territory was divided into three regions because the 
character of the farms semed to indicate a natural division of this kind. 

The more important points of difference between the character of the 
farms in these regions is shown in Table No. 33. 

TABLE No. 33 

COMPARISON OF CONDITIONS IN THREE DAIRY DISTRICTS 

Farms Dairy Cows Acres Value Acres of Value 

Region. Visited Per Farm, of Land. Per Acre. Pasture. Acre. 

Bliss, N. Y. 24 15.8 180.3 $54.00 60 $32.00 

Wayne and Livingston 

Counties 33 22 179.2 134.00 33 86.00 

Monroe County 84 14.3 98.5 197.00 17 109.00 

The farms located in the Bliss regions are for the most part devoted 
to milk production, having comparatively small sources of income outside 
of the income from milk. The farms in Monroe County are many of 
them engaged in the production of apples and other fruit as well as 
general farm crops and are located near enough to the City of Rochester 
to make it convenient to haul considerable quantities of wet brewers' 



88 



MILK SURVEY OF THE CITY OF ROCHESTER 



grains from Rochester to the farm. The differences in the cost of pro- 
ducing milk in these three regions are shown in Table No. 34, and in 
Tables Nos. 35 and 36 are shown the quantities of feed and labor per 
cow and per 100 pounds of milk in each of these three regions. 

TABLE No. 34 

COMPARISON OF COSTS OF PRODUCTION BY REGIONS 

Wayne and Monroe 

Bliss. Livingston Counties. County. 

Number of Farms 24 33 84 

Summary of Costs Per Cwt. of Milk : 

Depreciation on Cows $.0785 $.0715 $.0772 

Interest on Cows at 6% 1806 .1247 .1135 

Grain and other Concentrates 1.2054 .8919 1.1411 

Succulent Feed 4143 .7295 .7040 

Hay and other Dry Forage 1.0608 .5383 .5553 

Total Feed except Pasture $2.6805 $2.1597 $2.4004 

Interest on Feed and Supplies at 6% . .0424 .0439 .0404 

Pasture 3207 .2395 .2295 

Bedding 1165 .1576 .1780 

Human Labor 1.5391 1.0624 1.2287 

Horse Labor 1471 .0684 .1034 

Use of Buildings 1589 .1207 .1503 

Use of Equipment 0713 .0710 .0847 

Bull Service 0907 .0367 .0241 

Miscellaneous Costs 1331 .0943 .1342 

Total Cost 5.5594 4.2504 4.7644 

Returns except Whilesale Milk, per cwt.. .6799 .4561 .4849 

Net Cost (Difference) 4.8795 3.7943 4.2795 

Price received per Cwt. Milk 2.9093 3.3963 3.4157 

Loss per Cwt. Milk 1.9702 .3980 .8638 

Production per Cow (pounds) 4334 6053 7133 

TABLE No. 35 

QUANTITIES OF FEED AND LABOR PER COW 

Wa3me and Monroe 

Bliss. Livingston Counties. County. 

Grain and other concentrates 1,833 lbs. 1,867 lbs. 3,356 lbs. 

Succulent Feed 4,673 lbs. 11,949 lbs. 11,441 lbs. 

Hay and other Dry Forage 4,707 lbs. 3,346 lbs. 3,731 lbs. 

Human Labor 178 hrs. 183 hrs. 239 hrs. 

TABLE No. 36 

QUANTITIES OF FEED AND LABOR PER 100 LBS. MILK 

Wayne and Monroe 

Bliss. Livingston Counties. County. 

Grain and other concentrates 42.3 lbs. 30.8 lbs. 47.0 lbs. 

Succulent Feed 107.8 lbs. 197.4 lbs. 160.4 lbs. 

Hay and other dry forage 108.6 lbs. 55.3 lbs. 52.3 lbs. 

Human Labor 4.10 hrs. 3.03 hrs. 3.35 hrs. 



MILK SURVEY OF THE CITY OF ROCHESTER 89 

It has often been pointed out in the past that large producing cows 
produce milk more cheaply than small producing cows. 

It was recognized that one of the most important branches of the 
study of milk production should aim to bring out this difference. There- 
fore, all of the farms have been classified according to the volume of 
milk which they produced per cow each year, from less than 4,000 lbs. 
per cow to more than 9,000 pounds per year. Their average production, 
the number of farms in each group, the average number of cows per 
farm and the cost of production per 100 pounds and per quart of milk, 
are all shown in Table No. 37 : 

TABLE No. Z1 
EFFECT OF PRODUCTION PER COW ON COST OF PRODUCTIOJST 

Production Per Cow No. of No. of Cows Cost of Production 

Group. Average Pounds. Farms. Per Farm. Per Cwt. Per Qt. 

4000 or under 2841 9 17.8 $7,103 $0.1527 

4001 - 5000 4674 16 18.4 4.884 .1050 

.5001-6000 5446 '27 17.9 4.365 .0939 

6001 - 7000 6472 39 16.3 4.024 .0865 

7001 - 8000 7487 23 14.6 4.01 1 .0862 

8001 - 9000 8326 15 17.3 3.715 .0799 

Over 9000 9751 12 12.1 3.898 .0838 

It is obvious, that as in past investigations of this kind, the small 
producing cows produce milk at a much greater expense than the large 
producing cows. Thus, in the last column, it is to be noted that farms 
having cows producing an average of less than 4,000 pounds per year, 
produce milk at a cost of more than 15 cents per quart, while farms having 
cows producing an average between 8,000 and 9,000 pounds a year, pro- 
duce milk at a cost of about 8 cents. Cows producing over 9,000 pounds 
per year, apparently produce milk at a slightly higher cost than cov/s be- 
tween 8,000 and 9,000 pounds. This irregularity is a circumstance which 
may be due to unusual irregularity in costs, or to the fact that there were 
too few farms in the last group. 

In Table No. 38 is shown the relation of the production per cow to 
the hours of human labor and to the cost of labor: 

TABLE No. 38 
RELATION OF PRODUCTION PER COW TO LABOR 

Hours of Human Labor 

Production Per Per 100 Lbs. Rate Rate 

Per Cow. Cow Milk. Charged. Received. 

4000 or under 170 6.0 $0,363 —$0,291. 

4001 - 5000 192 4.1 .361 — .035 

5001-6000 196 3.6 .347 + .085 

6001 - 7000 213 Z.Z .330 + .137 

7001-8000 21Z 3.1 .349 -f .152 

8001-9000 221 2.6 .353 + .253 

Over 9000 266 2.1 .387 + .232 



90 MILK SURVEY OF THE CITY OF ROCHESTER 



In Table No. 38 it is to be noted that the number of hours of human 
labor per cow increases gradually with the increase in the volume of 
milk produced. This is because of the length of time required to milk 
large producing cows, and because the feeding and other services require 
more time for large producing cows than for small producing cows. The 
use of brewers' grains on the farms with larger producing cows required 
more time for the hauling of grain. On the other hand, when these hours 
of labor are compared with the quantity of milk produced, the opposite 
condition is true. It is seen from. Column No. 3 that the hours of labor 
per 100 pounds of milk are very much larger with small producing cows 
than the hours of labor per 100 pounds of milk for the large producing 
cows. In short, less labor is required in connection with the production 
of the same quantity of milk from large producing cows than small pro- 
ducing cows. 

In the last two columns it will be noticed that the rate charged for 
the human labor was nearly the same for all cows; but that the rate re- 
ceived increased from a loss of 29 cents per hour to a maximum gain of 
25.3 cents. While this did not pay the cost of the labor, yet the last 
column shows that the increase in the volume of milk produced per cow- 
brought in a much larger labor income. 

The quantity of feed required to produce 100 pounds of milk is 
shown for each of the same groups of farms producing from less than 
4,000 to over 9,000 pounds per cow annually, in Table No. 39 : 

TABLE No. 39 
RELATION -OF PRODUCTION PER COW TO FEEDING 





Pounds of Grain 


Pounds Succulent Feed 


Pounds Dry Forage 


Production 


Per Per 100 lbs. 


Per Per 100 lbs. 


Per Per 100 lbs. 


Per Cow. 


Cow. Milk. 


Cow. Milk. 


Cow. Milk. 


4000 or under 


1381 48.6 


5194 182.8 


4738 166.8 


4001 - 5000 


1661 35.5 


7087 151.6 


4752 101.7 


5001 - 6000 


2023 37.1 


11285 207.2 


3199 58.7 


6001 - 7000 


2480 38.3 


11263 174.0 


3410 52.7 


7001 - 8000 


3250 43.6 


10657 143.1 


4074 54.7 


8001 - 9000 


4342 52.1 


12880 154.7 


3548 42.6 


9001 and over 


4245 43.5 


12578 129.0 


3874 39.7 



Table No. 39 shows clearly that while the pounds of grain per cow 
increases with increased production, the pounds of grain per 100 pounds 
of milk are approximately the same. The pounds of succulent feed also 
increase gradually with the production per cow; but decrease per 100 
pounds of milk produced. The pounds of dry forage per cow diminish 
with an increase in production and also to a much larger extent diminish 
per 100 pounds of milk. The number of cows in each of these groups and 
the quantity of milk produced by them as well as the percentage of the 
total milk sold to the City of Rochester in each group is shown in 
Table No. 40: 



MILK SURVEY OF THE CITY OF ROCHESTER 91 

TABLE No. 40 

PRODUCTION PER COW AND THE TOTAL MILK SUPPLY 

Production Number of Total Number Milk Sold Per Cent, of 

Per Cow. Cows in Group, of Cows. Wholesale. Total Milk Sold. 

4000 or under 160 6.9% 419,182 Qts. 3.0% 

4001-5000 294 12.7% 1,306,895 Qts. 9.3% 

• 5001 - 6000 483 20.9% 2,509,025 Qts. 17.8% 

6001 - 7000 637 27.5% 3,967,796 Qts. 28.2% 

7001 - 8000 336 14.5% 2,417,615 Qts. 17.2% . 

8001 - 9000 259 11.2% 2,070,025 Qts. 14.7% 

Over 9000 145 6.3% 1,369,768 Qts. 9.7% 

From Table No. 40 it appears that 28.2 per cent, of all the milk 
supply of Rochester is furnished by cows producing between 6,000 and 
7,000 pounds of milk yearly and that this is the largest group both in 
respect to farms and in respect to cows producing milk for Rochester. 

One of the influences which is a most important factor in the cost 
of milk production and which has not received the recognition that it 
deserves, is the number of cows in a dairy herd. The volume of milk 
produced by each cow has been given an immense amount of study by 
dairy colleges and dairy farmers. On the other hand, it has been com- 
monly assumed that cows of small production would be unprofitable, re- 
gardless of the number of such animals in a dairy herd. It must be 
recognized that the "boarder" cows, or cows producing less milk than will 
pay their expense, are always a loss. On the other hand, the number of 
cows in a herd, by increasing the volume of milk produced, reduce to a 
great extent the cost of the milk, correspondingly reduces the loss on 
such boarder cows. The effect of the number of cows on the cost of 
production is shown in Table No. 41 : 

TABLE No. 41 

EFFECT OF NUMBER OF COWS ON COST OF PRODUCTION 

Number of Cows. Number Production Cost of Production. 

Group. Average. of Farms. Per Cow. Per Cwt. Per Qt. 

Under 10 1.1 24 6,635 $5.22 $0,112 

10-14 11.9 44 6,846 4.41 .095 

15 - 19 16.1 36 6,507 4.14 .089 

20 - 29 22.6 27 6,080 4.20 .090 

30 or over 41.6 10 5,682 3.47 .075 

From the above table it appears that there were 24 dairy farms hav- 
ing herds averaging 7 .7 cows, and that these individual cows produced 
an average of 6,635 pounds per year at a cost of $5.22 per 100 pounds or 
11.2 cents per quart. Contrasted with this, on 10 farms averaging 41.6 
cows, producing only 5,882 pounds each, the cost of milk production was 
only $3.47 per 100 pounds, or 7.5 cents per quart. 

The effect of the number of cows on labor, buildings *and equipment 
cost is shown in Table No. 42 : 



92 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. 42 

EFFECT OF NUMBER OF COWS ON LABOR, BUILDING AND 
EQUIPMENT COSTS 








Human 


Labor 












Hours 




Rate 


Building 


Equipment 


Number 


Hours. 


Per Cwt. 


Rate 


Received 


Cost 


Cost ■ 


of Cows. 


Per Cow. 


Milk. 


Charged. 


Per Hour. 


Per Cow. 


Per Cow. 


Under 10 


276 


4.16 


.3C8 


—.067 


$14.68 


$5.10 


10 - 14 


246 


3.60 


.359 


—.074 


10.15 


6.19 


15 - 19 


217 


3.33 


.362 


—.139 


9.70 


4.60 


20 - 29 


194 


3.19 


.336 


—.080 


7.61 


4.79 


30 or over 


155 


2.72 


.310 


—.293 


4.09 


3.23 



From Table No. 42 it is clear that the number of hours of labor per 
cow is greatly diminished by increasing the number of cows in a herd, 
thus reducing the labor cost. The number of hours of labor per 100 
pounds of milk is also diminished to a marked degree with an increase in 
the number of cows per herd. While the receipts for labor per hour 
are greatly increased, the cost of buildings per cow and the cost of equip- 
ment per cow are greatly diminished by an increase in the number of 
cows. This simply means that increase in the volume of business result- 
ing from large herds reduces all of the costs. 

The number of cows contained in each of the herds of different sizes 
and their percentage of the total, the quantity of milk produced by the 
herds of different sizes and its percentage of the total, are shown in 
Table No. 43 : 

TABLE No. 43 
NUMBER OF COWS AND TOTAL MILK SUPPLY 







Per Cent, of 








Number 


Number of 


Total Number 


Total Milk 


Per 


Cent. Total 


of Cows. 


Cows in Group. 


of Cows. 


Sold Wholesale. 


Wholesale Milk. 


Under 10 


184 


8% 


1,130,058 lbs. 




8% 


10- 14.... 


524 


23% 


3,417,332 lbs. 




24% 


15-19.... 


579 


25% 


3,632,938 lbs. 




26% 


20-29.... 


611 


26% 


3,581,400 lbs. 




26% 


30 or over 


416 


18% 


2,298,578 lbs. 




16% 



A review of the figures shown in Tables Nos. 37, 40 and 41 indicates 
that if the dairy herds averaging less than 5,000 pounds of milk per cow 
were eliminated, it would eliminate 12.3 per cent, of the supply and milk 
which now costs from 10 to 15 cents per quart to produce. If all herds 
with less than 10 cows were eliminated, it would remove 8 per cent, of the 
supply and milk now costing 11.2 cents per quart to produce. 

HEARINGS ON THE COST OF PRODUCTION 
In determining the cost of production for Rochester one branch of 
the investigation had to do with the securing of information from wit- 
nesses regarding the cost of production on dairy farms operated by them. 



MILK SURVEY OF THE CITY OF ROCHESTER 93 

These witnesses were dairy farmers producing milk for the City of 
Rochester, who were selected by the local officers of the producers' or- 
ganization, known as the Dairymen's League. The object in permitting 
the Dairymen's League to select their own witnesses was in order that 
they might present their own case to the Survey in their own manner and 
from their own point of view. The possibility of their purposely choosing 
witnesses who would testify to costs higher than the average cost of Roch- 
ester producers was fully recognized. For this reason the director of 
the Survey was prepared to receive these costs only on the basis of the 
producers' own selection, with the understanding that so far as the Sur- 
vey was concerned its main dependence would be placed upon producers' 
costs secured through the Survey's own investigators. 

This testimony of these witnesses in so far as it referred to special 
cost items and the total cost of producing milk on their farms, is given in 
part below. This testimony is not given in full as much of it had to do 
with discussions not directly concerned with cost items. Portions of the 
testimony which are abstracted were the portions of greatest importance 
to the Survey. 

Freeman Gilmore^ produced as a witness on behalf of the Dairy- 
men's League, first being duly sworn, examined by Mr. Fuller, testified: 

O. You live where? 

A. I live in the Town of York. 

O. And what is your business? 

A. Farming. 

O. And how many cows do you keep ? 

A. From 45 to 50. 

O. And your milk is sold where ? 

A. In Rochester. 

O. And it is shipped in, is it? 

A. Yes, sir. 

O. You made some figures as to the cost of production, have you 
not ? 

A. Yes, sir. 

Q. How large is your farm? 

A. 433 acres. I might state right here that the farm is divided by 
a highway, and that the dairy barns are on one side by themselves, and 
our dwelling house and horse barns, etc., are on the other side of the 
road. 

Q. How much do the oats total? t 

A. $312.50. 

O. Cotton seed meal ? 

A. $61.80. Now, then there was 12,024 pounds there, $211.01, that 
was not bought in car load lots but at a local mill, but the price was 



94 MILK SURVEY OF THE CITY OF ROCHESTER 

the wholesale price. And then I bought a bran substitute, 27,760 pounds 
at $33.00, total $459.04. Then we bought 25,700 pounds of oil meal at 
$51.50 and that came to $663.93. Might add we hauled the above feed, 
$78.00. Now, then, I fed in hay, the following: 75 tons at $18.00, 
$1,350.00, and there was 288 tons of ensilage, which I estimated at its 
feeding value, $6.00, $1,628.00; and then 30 tons of straw at $5.00, 
$150.00. Now then, the total hours of labor spent on the cows; one man 
I paid $60.00 a month and boarded him, and I put it in at $900.00. There 
is another man I paid $780.00, and one man milked mornings, $109.50. 
Now, then, I had another charge of a man, $600.00, I have had every 
morning to see that the milk is properly cooled and looked after. There 
is a rent of land for pasture purposes ; I estimate that it would take 3 
acres for a cow, $15.00 an acre, makes a total of $700.00. I have aver- 
aged taxes on the entire farm and I figured, I think, $1.13 an acre, and 
that is $158.20. 

Q. That is charged to the cattle? 

A. Yes. Now, then, in the use of the dairy buildings; there is 3 
silos and the dairy house, cattle barn, hay and grain barn, and an ice 
house, and a shed for sawdust. I estimate the value of that at $10,000.00, 
about 6 per cent, interest on it, $600.00, and a depreciation of 4 per cent., 
$400.00. The insurance on it for 3 years is $165.00 ; that makes an aver- 
age of $55.00 a year. I have a list here of equipment: 57 eight gallon 
cans; 4 five gallon cans; 8 pails, $1.25, $10.00; milk wagons, $110.00; 3 
shovels, $1.75 each, $5.25; 1 shovel at $1.00; 3 brooms, etc. I put the 
total depreciation on that at $201.33. 

Q. What did you put the total value? 

A. $604.00. Then I had an investment in cows of 48 cows at 
$150.00 each, figures $7,200.00; the interest on them at 6 per cent, is 
$432.00 and the depreciation less the salvage is $1,152; and one bull at 
$150.00, and charged interest on him at $9.00; on the water supply, 
which consists of tile and pipe lines and derrick and wind-mill, gas engine, 
engine house, hydrants, etc. I estimated the cost of and placed them at 
$1,700.00, and the interest at $102.00; depreciation at 7 per cent., $112.00; 
gasoline, 55 gallons at 1554- There is a slight discrepancy on that be- 
cause I estimated that about 70 per cent, of the water supply went to 
the barn; as a matter of fact, I think 90 per cent, of that went to the 
cow barn; it did not alter the figures materially, but I have not seen 
these fi'gures until this afternoon, going over them a second time; but 
the water supply for the entire farm, I figured it at 70 per cent ; I think 
that is a low estimate. Now, under miscellaneous, there was, insurance 
on cows, $2,000.00, $12.00; salt, $18.00; lanterns, 6 lanterns, $7.50; hot 
water heater, $15.00; I figured the interest and depreciation at $4.40; 7 



MILK SURVEY OF THE CITY OF ROCHESTER 95 

cords wood, $56.00 ; $9.30 for cleanser powder, and fly spray, $10.00, and 
lime $10.50, and the cooling tank and drinking trough, $85.00, 10 per 
cent, $8.50; sawdust, $65.00; depreciation, $20.00; 31;^ tons of ice, 
$118.13; freight on ice, $45.33; hauling ice, $42.00; total, $404.94. 

Q. Your next item is for your windmill and tank, etc. ? 

A. Yes. 

O. And you figure your interest and depreciation on that at 
$160.00? 

A. 70 per cent, on the water supply wou^d make that $160.00. 

O. And that makes a total expenditure of how much ? 

A. $12,305.48. 

Q. Now, your credit on here is what ? 

A. 420 tons of manure at $1.00 a ton, $420.00; and 43 calves at 
$7.00, $301.00. 

Q. xA.nd you produced how many pounds of milk? 

A. 279,078 pounds. 

Q. And that is approximately 5,600 pounds per cow ? 

A. Approximately. 

O. How much do you figure your milk cost you? 

A. Four dollars and a fraction. 

Q. Around $4.30? 

A. Around there. 

Q. Have you calculated anything for your own service? 

A. Yes. 

Q. How much? 

A. $600.00. I figure my time is worth more than that. 

Q. About how much would that be an hour? 

A. I cannot tell you how much. 

O. Would it be thirty cents an hour? 

A. For a year? 

Q. Yes, on an average right straight through? 

A. About two dollars a day, would it not ? 

Q. About a ten-hour day? 

A. I ought to be worth two dollars a day, I think. 

Phelps Hopkins, produced as a witness, first being duly sworn, 
examined by Mr. Fuller, testified: 

Q. Mr. Hopkins, you reside where? 

A. Pittsford. 

Q. What is your business? 

A. Farmer, 

Q. And you have been engaged in that business all your life? 

A. Why, no, I lived on a farm all my life. 



96 MI LK SURVEY OF THE CITY OF ROCHESTER 

Q. Will you describe your farm? 

A. 220 acres, general farming; about 35 acres of woodland; about 
eight acres pasture, and the rest of the farm is used in growing wheat, 
silage, corn, some potatoes, oats and some barley, and last year I aver- 
aged thirty-two cows. 

O. About what is the value of your farm, Mr. Hopkins, per acre? 

A. About $200.00. 

Q. And that is located how far from Rochester? 

A. Five miles and a half from the city line, Cobb's Hill. 

Q. You ship your rnilk into Rochester how? 

A. By trucks, automobile trucks. 

Q. You have kept some accounts as to the cost of the production 
of milk, have you ? 

A. Yes. 

O. And you have brought here in court your books showing your 
accounting system ? 

A. Yes. 

Q. Will you describe how you kept those accounts ? 

A. Yes. At the first of the year all the books start, March 15, 
1918. 

Q. Your fiscal year ends the 15th of March. 

A. Yes. We take an inventory of everything on the farm at the 
beginning of the year, including everything on the farm, horses, cattle, 
equipment ; all equipment is listed in detail ; the same with individual 
animals; all food on hand, hay, straw, silage, are all inventoried at their 
either appraised value or what they are worth on the market. 

Q. Are you a Cornell man ? 

A. Yes. 

O. What course? 

A. Two years special course. 

O. And you may also state the method in which you keep your 
accounts during the year? 

A. Yes, I will. A separate book; two different books are used,^a 
ledger and labor book. The ledger is composed of different industries 
on the farm, such as crops and cattle and a lot of smaller industries, 
pumping water, etc. The labor book is composed of the same industries 
practically and the labor each day is written up; how much time is spent 
on labor, man hours and horse hours. Also, a chore sheet is kept, which 
is time spent on the chores. Then at the end of the next year, the books 
are closed once a year, labor is computed by hours, the cost per hour; 
the total charge against labor, including board as well as the cash and 
rent of tenant house, and all those things enter into it and a charge of 



MILK SURVEY OF THE CITY OF ROCHESTER 97 

labor against it and labor is computed, cost per hour and charged to 
various enterprises. The same way with horse labor and then the in- 
ventories are balanced up and a new set of books started. That is in 
general the practice of the books. 

Q. And you start in again after the end of the fiscal year? 

A. Yes. 

O. Now, have you made for me computations in reference to the 
production of milk? 

A. I have. 

Q. And you say, your year begins and ends on the 15th of March? 

A. Yes. 

Q. Your computation then runs on quantities from the 15th of 
March, 1918, to the 15th of March, 1919? 

A. Yes. 

Q. What was your total cost? 

A. $8,961.51. 

Q. What were your total credits? 

A. $7,936.26. 

Q. And what was your net cost of milk? • 

A. $4.20 per hundred. 

Q. That was your cost? 

A. That is not last year's figures ; those are present prices. 

Q. I mean, present prices, what was it? ■ " 

A. $4.20. 

Q. How many pounds of milk did you produce? 

A. 188,960. ; 



IX 

COST OF COUNTRY HAULING 

Each day a large amount of labor on the part of dairy farmers and 
horses is expended in hauling milk from the farms to the point of ship- 
ment. For the purpose of securing information as to the number of men 
and horses employed in this work, and the points from which milk is 
shipped, a form of questionnaire was prepared and mailed to all of the 
778 dairy farms producing milk for Rochester. Replies were received 
by mail from 276 producers, from which the following information was 
obtained : 

Number of producers 276 

Producers' own wagon to railroad platform 163 

Producers' own wagon to Rochester 10 

By truck with other farmers to railroad platform 6 

By truck with other farmers to Rochester 64 

By dealers' truck to Rochester 13 

Shipping to Rochester by rail 119 

Shipping to Rochester by trolley 68 

Amount of milk produced daily 35,565 Qts. 

Amount of milk received from producers' own wagon to railroad plat- 
form 22,799 " 

Amount of milk received by producers' own wagon to Rochester 1,492 " 

Amount of milk received by truck with other producers to railroad 

platform 767 " 

Amount of milk received by truck with other producers to Rochester. . 7,313 " 

Amount of milk received by dealers' trucks to Rochester 1,630 

Arriount of milk received by railroad to Rochester > 17,420 " 

Amount of milk received by trolley to Rochester 7,710 " 

Amount' of milk delivered by producers living on trolley line (18 men) 1,564 

Although all of the 778 producers did not reply to the questionnaire, 
the replies received from 276 of them were from every dairy district, 
and it is believed that these replies were sufficient in number and suffi- 
ciently well distributed to furnish a fair estimate as to the labor per- 
formed in the handling of milk from the dairy farms to the point of ship- 
ment. It will be noted from the table that 163 producers hauled milk in 
their own wagons to the railroad platform, either the steam railroad or 
the trolley railroad, while 10 producers hauled milk from their farms 
directly into the City of Rochester, and 6 producers hauled milk to the 
railroad platform with other farmers. The number of trucks hauling 
milk to Rochester owned by farmers or owned by dealers was not ob- 
tained. It is therefore not possible to form an estimate as to whether 
these trucks were fully loaded, or whether they represented less than a 
full load. If we give attention especially to the hauling of milk on the 
country end of the line by the farmers themselves from the reports of the 
inspectors, it is estimated that the average distance traveled by each 
farmer is 2 miles, and that the length of time required for taking milk 
out of his milk house, loading it onto his wagon, hitching up his horse. 



MILK SURVEY OF THE CITY OF ROCHESTER 99 

driving to the shipping point, delivering his milk, securing his empty- 
cans, returning to the farm and unhitching his horse, is a total of IJ/2 
•hours. This estimate would apply to the 163 farmers hauling milk in 
their own wagons to the railroad platform. It would also apply to the 
. 10 farmers hauling milk directly to Rochester, if we eliminate the length 
of time spent in hauling milk within the city limits. It is fair to assume 
of the 6 farmers hauling milk jointly not more than 3 wagons would be 
employed, and therefore only 3 of these farmers would be engaged at one 
time. This would make a total of 176 farmers out of the 276 from whom 
reports were received who were engaged daily in hauling milk from their 
farms to the shipping point. 

The value of labor per man hour is estimated at $ .349, and horse 
labor $ .194, which are the average rates on the 141 farms on which 
cost of production records were obtained. This makes $ .543 per hour 
for 1 man and 1 horse. For ly^ hours the cost is $ .814. If we multiply 
this by 176 farmers, the daily cost is $143.26 under the present system of 
hauling. If we assume that the same proportion of farmers are hauling 
milk in the entire list as in the list reporting, it would mean that, out of 
the total 778 farmers, there are 496 who haul their own milk, and if we 
apply the same costs, the daily cost is $403.74. 

It is recognized that from a business standpoint the most economical 
system of hauling is a co-operative system. Under this arrangement 
large trucks travel on the main roads capable of carrying not less than 
30 cans each, and some of them carry much larger loads than this. The 
dairy farmers living on side roads, or whose houses are located on lane- 
ways back from the main road, find it necessary to hitch up a horse and 
carry the milk by wagon to the main road. The farmers living directly 
on the main road may carry their cans by hand to the platform. Such a 
system as this has been adopted on a large scale by many dairy districts. 

It is estimated that a fair allowance for the average time required 
to take milk out of the milk house and carry it to the main road and re- 
turn with empty cans would be one-half hour to each farmer. If we use 
the same cost for man and horse, this would amount to $ .271 per half 
hour. Applying this to the 176 farmers reported as hauling milk wotild 
make their daily costs for carrying milk from the milk house to the main 
road, $47.75. Applying the same figure to the total number of farmers 
estimated hauling, which is 496, would make the daily cost of carrying 
milk to the main road $134.56. 

The cost of trucking on the main road in the dairy districts where 

this is performed is charged for at the rate of %c per quart of milk. 

. Applying this charge to the milk handled by the 176 farmers reporting 

would make the daily cost of trucking on the main road $62.64. If we 



100 MILK SURVEY OF THE CITY OF ROCHESTER 

assume that the same proportion of milk was carried by the 496 farmers 
estimated as hauling, the daily cost of trucking on the main road for 
their milk would be $176.53. This would make the total cost under a 
co-operative system for the 276 farmers reporting $110.39, and for the 
496 estimated as hauling, $311.09, showing a total daily saving over the 
present individual system for the 176 farmers reporting of $32.87, or 
$11,997.55 yearly. 

The savings under the trucking system for the 496 farmers estimated 
as hauling would be daily $92.65, or yearly $33,817.25. 

It is recognized that these figures are only estimates and therefore 
not necessarily a close statement of what actually could be done under 
the co-operative system. It is also recognized that the geography of the 
dairy districts will determine to a large extent whether a co-operative 
trucking system on main roads can be installed to advantage. It is a 
fact, however, that in every dairy district there are main roads reaching 
from the remotest farm to the point of shipment, and there are but few 
of them where it would not be possible for a wagon starting from the re- 
motest point to pick up milk from side roads and from lane-ways so 
that by the time it reached the shipping point it would be carrying a full 
load. On the return journey this same wagon can leave at the entrance 
of the side roads and lane-ways the empty cans which it received from 
the shipping point. 

Every investigation made of the business of country hauling has 
shown that in most dairy districts there are excessive numbers of wagons 
and horses being used by the dairy farmers for this purpose, the cost of 
which must be charged by them in the price demanded for milk. Here 
seems to be one of the branches of the producers' business which would 
lend itself to a decided economy if, through a local committee, the terri- 
tory could be districted and a trucking system established which would 
provide for full loads rather than the small number of cans now carried 
per wagon. 

The milk produced by the 176 farmers hauling their own milk was 
25,058 quarts, or about 143 quarts per farm, which is 3}4 40-quart cans, 
or 4% 32-quart cans, so that these farmers were actually carrying be- 
tween 3 and 4 cans each. The average 2-horse farmers' wagon can 
carry at least 30 cans, while trucks adapted for the purpose can carry 
between 40 and 50 cans; consequently, instead of the 176 farmers daily 
hauling milk to the shipping point, the same milk could be hauled in less 
than 20 trucks. If we assume the milk produced by the 496 farmers 
estimated as hauling from the entire producing territory is in the sam^ 
proportion, instead of 496 wagons and horses and men the same milk, 
could be hauled on less than 56 trucks. 



MILK SURVEY OF THE CITY OF ROCHESTER 101 

TABLE No. 44 

Farmers Total 

Reporting. Farmers. 

276 778 

Hauling own milk 176 496 

Present cost $143.26 $403.74 

Cost to main road 47.75 134.56 

Trucking on main road 62.64 176.53 

Total estimated cost $110.39 $311.09 

Total daily saving $32.87 $92.65 

Total yearly saving $11,997.55 $33,817.25 



X 

DEALERS' DISTRIBUTION COSTS 

The center of the milk problem in all cities is considered to be the 
cost of milk distribution. While there are some economies which could 
be secured through better business methods in the production of milk 
by the dairy farmer, it is well recognized that these are difficult to estab- 
lish and would require a considerable number of years. 

On the other hand, the inhabitants of every large city and the public 
officials are carrying on their agitation on the high cost of milk, prin- 
cipally with the thought in mind that the cost of distribution is excessive 
and that through some reorganization in the industry, or perhaps through 
municipal control or ownership, these costs can be greatly reduced. 

In approaching this problem in this survey, a new method of in- 
vestigation was planned. In all previous surveys the main dependence 
for the investigators into the cost of milk distribution has been the work 
of expert cost accountants who have devoted the greater part of their 
time to the examination of the dealers' books and the checking up of 
vouchers with book entries to determine whether these entries were cor- 
rect or not. 

The reports handed in as a result of the work of the expert account- 
ants have, in every survey where this work has been done, presented to 
the investigators only a financial statement which the books themselves 
contained. 

Such financial statements are unsatisfactory in two respects. In 
the first place, the methods of bookkeeping in the milk industry have 
never been standardized. Consequently the financial statements taken 
from dealers' books rarely correspond. For this reason, even though 
the financial statements may be correct, it is impossible to make accurate 
comparison of cost items between one milk company and another milk 
company. 

The second and more serious cause for dissatisfaction with such 
figures is that they in no way reveal to the investigators what are the 
reasons or causes for these expenses, or whether the expenses are justi- 
fied. Consequently, in all surveys whose main dependence has. been placed 
on the work of auditors, it has been impossible for the directors of such 
surveys to draw conclusions or to make recommendations based on any 
accurate knowledge of expense items, or to state whether such expense 
items are justified or whether they could be reduced. 

In order to overcome these difficulties in this Survey, a new plan 
was inaugurated which consisted in a study of the conduct of the busi- 
ness itself outside of the dealers' books. These studies were made by 



MILK SURVEY OF THE CITY OF ROCHESTER 103 

inspectors in the employ of the Survey, who personally visited all of the 
large milk companies in the City of Rochester and a considerable number 
of the small dealers and, by personal observation of the work performed 
in these milk plants, took notes of each operation, the number of em- 
ployees, the time occupied and the cost of performing every branch of 
the business. 

The dealers' books were not neglected, as expert accountants were 
employed to take a statement from the dealers' books, chiefly for the 
reason that the factory charges or expenses outside of labor charges could 
not be obtained by inspection. The expert accountants employed by the 
survey were unable to find in the City of Rochester, however, more than 
four dealers who kept books in such a manner that the accounts could be 
relied upon. They visited 15 of the small milk dealers but were unable 
to secure figures from them which were sufficiently reliable to justify a 
report. 

The new plan pursued in this survey consisted, in short, of making 
a careful study of the conduct of the business itself as the main depend- 
ence, rather than to place dependence upon an examination of the dealers' 
books. 

In making these inspections of the milk factories, it was necessary 
to standardize the work by drawing up report blanks which could be used 
by each inspector so that the reports handed in would be uniform and 
also comprehensive. The points observed in connection with the con- 
duct of the business included : 

(1) The total units of operation, such for example as the quantity 
of milk received, the quantity of milk bottled, the number of bottles 
washed, the riumber'of cans washed, etc. 

(2) The number of persons employed in each operation. 

(3) The total number of hours of labor. 

(4) The wage rate per man hour. 

(5) The total cost of the operation. 

(6) The unit cost of the operation, for example, the cost per quart 
for milk received, the cost per bottle for bottles washed, the cost per can 
of cans washed. 

There were more than 36 different operations examined in this way 
in these different milk factories. 

In addition to the examination of the milk business of the dealers 
of Rochester in this manner, similar examinations were made of the 
largest milk business in the City of Ottawa, Canada ; of the largest busi- 
ness in the City of Philadelphia, Pa., and of the largest milk companies 
in the Cit}^ of Baltimore. 



104 MILK SURVEY OF THE CITY OF ROCHESTER 

The l-easons for the conducting of these examinations in these other 
cities were because it would be of great value in judging of the efficiency 
of the work in Rochetser to be able to make comparisons between the 
total costs and the individual cost items in Rochester and similar cost 
items of other cities, and also because in the cities of Ottawa and Phil- 
adelphia economies have been instituted which might point the way 
toward the adoption of similar economies in Rochester. 

In assembling all of the facts and figures accumulated by the in- 
spectors and the cost accountants, it is recognized that the tabulation of 
these results could be drawn up in a number of different ways. The 
chief object which must be kept in mind in putting together these figures 
is the total cost for the City of Rochester. This means that the milk 
business of the City of Rochester must be looked upon as a unit. The 
inhabitants of the city are not particularly interested in the business of 
any individual dealer but in the business of the city as a whole. There- 
fore, the object of the tabulations which have been made has been to 
get together under a single head all of the different cost items for all of 
the dealers in the city so that a single simple statement can be made 
showing what the total milk supply for the entire city costs and what each 
of the different branches of expense connected with this supply costs. 

In order to accomplish this, the figures must be assembled first for 
the individual dealers. This was done on a series of cards or report 
blanks on file in the office of the survey. It has not been thought neces- 
sary to present the individual costs of each individual dealer separately. 
In order, however, to secure an accurate statement for the entire city, 
it has been necessary that the costs of each dealer should be set down in 
some form and the best method seemed to be to divide the dealers into 
three groups for this purpose: the first group being dealers handling 
500 quarts of milk or less ; the second group dealers handling from 501 
to 1,000 quarts; and the third group dealers handling over 1,000 quarts. 

Before presenting these tabulations one other consideration is de- 
sirable. The cost of labor naturally belongs in a separate division from 
the cost of supplies and other plant expenses. Labor, being the human 
element in the business, lends itself to reorganization and business effi- 
ciency more easily than the purchase of supplies or other plant charges. 
Consequently, in this work, labor is separately considered and the payroll 
and salaries have all been studied from the standpoint of the labor per- 
formed as a separate problem. 

In Table No. 45 are presented the labor costs for the first group of 
milk dealers, handling 500 quarts or less. 



MILK SURVEY OF THE CITY OF ROCHESTER 



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106 MILK SURVEY OF THE CITY OF ROCHESTER 

In Table No. 45 attention is called especially to column No. 6, in 
which are set down the unit costs for each item of expense; thus, for 
example, in this list it costs 2.1 mills to wash a bottle; 2 cents to wash a 
can, 3 mills to pasteurize and cool milk, 3 cents to fill a can, etc. 

In the last part of the tabulation are given the totals for the entire 
group and also a statement of the cost for each class of milk, including 
retail bottled milk, wholesale bottled milk and wholesale canned milk. 



MILK SURVEY OF THE CITY OF ROCHESTER 



107 



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108 MILK SURVEY OF THE CITY OF ROCHESTER 

In Table No. 46 are given similar labor costs for the group of milk 
dealers handling 501 to 1,000 quarts. A comparison of the costs of the 
different operations of this group with the dealers of the previous group 
is interesting; for example, in this group milk receiving costs .5 of a 
mill as compared with .7 in the previous group; washing a bottle 1.4 
mills as compared with 2.1 in the previous group; washing a can costs 
1 cent and 6 mills as compared with 2 cents in the previous group, etc. 

Table No. 46 also shows the costs for the entire group and the costs 
for retail bottled milk, wholesale bottled milk and wholesale canned milk. 



MILK SURVEY OF THE CITY OF ROCHESTER 



109 



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110 MILK SUR VEY OF THE CITY OF ROCHESTER 

In the Table No. 47 are presented the costs for the dealers handling 
over 1,000 quarts. It is most interesting to compare the costs of these 
three groups of dealers, item by item, and also to compare the costs for the 
different classes of milk. The object, however, of putting together the 
figures in this way is not limited to the interest attaching itself to these 
comparisons, but the main object is to pave the way for getting together 
the costs for the entire city which will be assembled in tabulations later on. 

While the Survey has decided not to present the individual costs of 
all milk dealers in the City of Rochester for the purposes of comparison, 
it is thought desirable that the costs of a few of the companies should be 
presented. Consequently, in Table No. 48 are presented the costs for 4 
of the large milk companies of Rochester and also for a large milk com- 
pany in Philadelphia and in Ottawa, Canada. 



MILK SURVEY OF THE CITY OF ROCHESTER 



111 



TABLE NO. 48 
UNIT LABOR COSTS 



Labor Charges 
Operation. 


1 1 
101 132 
Retail Retail 


47 
Retail 


301 
Retail 


320 
Retail 


119 

Whole- 
sale 


1. Milk receiving 

2. Bottle washing 

3. Can washing , 

4. Apparatus washing . . 

5* Pasteurizing 

6 Cooling 


.000436 
.000582 
.000349 
.000271 
.000280 

.00093i 
.000079 
.016962 
.001651 
.001071 
.000984 

.000794 

.002399 
.001201 

.001830 

.029829 
.007683 


.000267 
.000538 
.000350 
.000281 
.000196 

.000609 
.000080 
.015935 
.000900 
.000163 
.001138 
.000450 
.000750 

.000200 

.001750 
.000892 
.003179 

.001000 

.000356 

.029034 
.006517 


.00043426 
.00208991 
.00024330 
.00068870 
.00058858 
.00002523 
.00168480 
.00046136 
.01909000 

.00127266 
.000839 
.000284 
.00044077 

.00206119 
.004775 
.00191696 
.00041972 

.001525i5 

.002732' ' 

.04157193 
.00153 


.00031906 
.00055966 
.00017808 
.00012505 
.00009670 

.00046858 
.00002971 
.00778920 
.00252836 
.00075458 
.00101694 
.00011609 
.00080171 

.00002902 
.00019967 
.00071302 

.00009377 
.00065046 

.00017278 

.01664244 
.00038696 


.00073668 
.00108370 
.00017677 
.00028645 
.00005935 

.00123766 
.00001898 
.01800644 

.00039759 
.00096669 
.00019873 
.00083911 

.00003967 
.00027550 
.00299860 

.00047762 
.00090749 
.00024784 
.00122896 
.00016575 
.00025793 
.00018750 
.00004196 
.00032873 
.00019498 
.00007522 
.00011921 

.03155445 


.000533 
.000400 
.000800 
.000400 
.000267 
000267 


7. Bottling and Capping. 
8 Can filling 


.000267 
000533 


9. Driving retail route. . 

10. Driving wholesale . . . 

11. Driving R. R. to plant 
12 Stable 


.000307 
.002300 
.000800 
.000133 


13 Garage 


.000267 


14. Engine room 

15. Refrigerating plant . . 

16. Plant protection 

17. Experimental 

18 Office force 


.000400 
.000133 

001530 


19 Collectors 


00060^ 


20. Superintendence 

21. Storage and loading. . 

22. Refrigerator 

23. Trucking to branches 

24. Route returns 

25. Miscellaneous 

26. Tin shop 


.00220 





27. Laundry' 




28. Sales counter 

29. Wagon painting 

30. Plant painter 

31. Carpenter 




32. Creamery 




33. Butter room 

34. Specialties 




35. Canvassers 




36. Blacksmith 




Sub Total 


012137 


Administration salaries . . 


.002237 


Grand Total 


.037512 


.035551 


.04310193 


.01702940 




.014374 



In Table No. 48 are plants Nos. 101, 132, 47 and 119, all Rochester 
milk companies, and plant 301 which is an Ottawa milk company, and 
plant No. 302 a Philadelphia milk company. A study of these figures 
shows some remarkable differences ; for example, under the head of "Can 
Washing" it is obvious that the Ottawa company and the Philadelphia 
company, which both have approximately the same charges, are washing 
cans by the use of apparatus at an expenditure of labor which makes 
these prices much less costly than the prices of can washing by any of 
the companies in the City of Rochester. 



112 MILK SURVEY OF THE CITY OF ROCHESTER 

Under the head of "Pasteurizing," the cost of pasteurizing by the 
Ottawa milk company and the Philadelphia milk company is far lower 
than the cost of pasteurizing by any of the Rochester milk companies. 

Under the head of "Driving Retail Routes," the cost for the City of 
Ottavv^a is far lower than the cost for any of the other companies in the 
list excepting plant No. 119, a Rochester company which has practically 
no retail business. 

Under the head of "Office Force" is a most remarkable series of 
costs. .In this instance the cost of office force for the Ottawa milk com- 
pany is so much lower than the costs for any of the other companies that 
one would think the figure must be mistaken. It is, however, entirely 
correct and due to the establishment of a most efficient system of book- 
keeping by the Ottawa milk company. 

The costs in the three groups of dealers appearing in the three prev- 
ious tabulations have been assembled together in order to get the total 
cost per quart for retail bottled, wholesale bottled and wholesale canned 
milk for the entire City of Rochester. These costs have been obtained 
by putting together the costs of all of the dealers in the above group 
and dividing these costs by the amount of milk sold in each class. These 
results are shown in Table No. 49. 



MILK SURVEY OF THE CITY OF ROCHESTER 



113 



TABLE NO. 49 

DISTRIBUTION OF LABOR COSTS PER QUART FOR RETAIL BOTTLED, 

WHOLESALE BOTTLED AND WHOLESALE CANNED MILK 

FOR ROCHESTER— BASED ON SALES. 







Totals for 


Rochester. 




Operation. 


-6^ 

^o 
c« in 


Is 

o 

si 


-6 

<L> 

1^ 


^2 

^ o 


<u 

c 
c 

u ^ 

"^ ?^ 
^ 00 


.t! 3 


Milk receiving 

Bottle washing 

Can washing 


$ 37.31 

106.73 

33.09 

41.95 

28.61 

21.34 

94.38 

4.50 

712.58 

45.78 

60.49 

22.99 

29.85 

9.67 

2.74 

82.75 

138.64 

32.44 

16.80 

16.07 

76.63 


.0006511 
.0018624 
.0005774 
.0007320 
.0004992 
.0003724 
.0016469 
.0000785 
.0124348 

.0007988 
.0010555 
.0004011 
.0005208 
.0001687 
.0000478 
.0014440 
.0024193 
.0005661 
.0002932 
.0002804 
.0013372 

.0281493 


$ 7.36 

20.82 

6.4S 

8.25 

6.17 

3.93 

18.45 

.93 

68.27 
8.96 

11.57 
4.42 
6.17 
2.01 
.55 

16.31 

26.92 
6.47 
3.51 
3.20 

15.28 


.0006464 
.0018289 
.0005692 
.0007247 
.0005420 
.0003452 
.0016206 
.0000817 

.0059970 
.0007870 
.0010163 
.0003883 
.0005420 
.0001766 
.0000483 
.0014327 
.0023647 
.0005683 
.0003083 
.0002811 
.0013422 


$ 5.51 

8.i2 
5.58 
5.06 
1.02 

2.85 

33. i 7 
6.60 
9.08 

2.85 

6.09 

1.88 

.88 

16.73 

16.77 

10.47 

4.57 

5.18 

24.73 


.0006199 
0009135 


Apparatus washing .... 
Pasteurizing 


.0006278 
0005693 


Cooling 


.0001147 


Bottling and capping. . . 
Can filling 


.0003207 


Driving retail routes . . 

Do. wholesale routes. 

Do. R. R. to plant 

Stable 


.0037320 
.0007426 
.0010216 


Garage 


.0003206 


Engine room 

Refrigeration plant . . . 

Plant protection 

Office force 

Collectors 


.0006852 
.0002115 
.0000990 
.0018823 
.0018868 


Superintendence 

Miscellaneous 

Canvassers 

Administration salaries. 


.0011779 
.0005141 
.0005828 
.0027824 


Totals 


$1,615.34 


$246.03 


.0215720 


$167.14 


.0187113 



It must be borne in mind that the charges in this table are strictly 
limited to labor charges and include no other expenses. At the bottom 
of each column is given the total. Thus, for example, it will be noted 
that the total labor costs for the work performed in handling retail 
bottled milk is a little more than 2 cents and 8 mills per quart ; the total 
cost for handling wholesale bottled milk is somewhat more than 2 cents 
and 1 mill per quart, wdiile the handling of wholesale milk in cans is more 
than 1 cent and 8 mills per quart. 

The total costs for all classes of milk and for all three groups of 
dealers shown in the previous tabulations have been assembled together 
in one table for the purpose of showing the total amount of milk handled, 
bottles washed, cans washed, apparatus washed, milk pasteurized, cooled 
and bottled, the number of cans filled, the amount of milk delivered at 
retail and at wholesale, the amount of milk received from the railroads. 



114 



MILK SURVEY OF THE CITY OF ROCHESTER 



etc., for the entire city. In short, all operations of all dealers have been 
assembled together and treated as if the city were conducting the milk 
business under a single head. Also all of the employees at present en- 
gaged in the business have been put together and all of the hours expended 
by them in their labor. The cost of each operation and the wages paid 
to the employees per hour and the total costs for the city also appear in 
this table. These figures are all assembled in Table No. 50. 

TABLE No. 50 
CITY TOTALS FOR UNIT OF LABOR INVOLVED IN EACH OPERATION 



) 

Operation 


en 

'a . 

P o 


in 

O <u 

e s 


° o 

1 s 


u 

o 

c 

CT3 

s 

u 

p, 
'2 


'c 

3 
O 

U 


1h' 

3 
O 

u 
<u 

<u 
Pi 


O Oi 

to dj 


Milk receiving 

Bottle washing ... 


82,075 quarts 
88,784 bottles 
3,879 cans 
82,075 quarts 
4^1,160 " 
33,266 " 
83,503 bottles 
638 cans 


173 113.9 
215 333.0 
1.56 125.0 
182 130.5 

37 79.7 
118 64.3 
224 286.9 

17 20.8 
304 1544.5 

179 224.5 

93 138.8 

110 195.9 

59 60.8 


721 

267 

31 

629 

554 

517 

291 

31 

2,7 

90 

390 

355 
753 


.00061 14 
.0014366 
.0122944 
.0006796 
.0009022 
.0007903 
.0013512 
.0129781 
.0124349 

.0050035 

.0011344 
.0011653 
.0007607 
.0007629 
.0005190 
.0002780 
.0020426 
.0022215 
.0024402 
.0014476 
.0019048 
.0048934 

istration 


$.441 
.383 
.382 
.427 
.500 
.409 
.393 
.398 
.461 

.452 

.442 
.414 
.498 
.448 
.455 
.261 
.390 
.439 
.676 
.358 
.506 

.438 


? 50.18 

127.55 

47.69 


Apparatus washing 

Pasteurizing & Cooling. 
Cooling 


55.78 
39.84 
26.29 


Bottling and capping. . . 


112.83 
8.28 


Retail delivery 

Wholesale delivery 

Driving R. R. to plant. . 
Stable 


57,305 qu 

11,386 qts 
8,888 qts 

54,072 qu 

69,630 

45,802 

5.5,194 

26,129 

15,000 

56,687 

^2,075 

20,236 

17,187 

12,836 

23,836 


arts 

. bottled 1 
. in cans j 

arts 


712.58 

101.44 

61.34 
81.14 


Garage 


30.26 


Engine room 


44 93.91588 
23 29.81877 

2 16.01938 

72 297.0 191 

186 415.2 198 

8 73.01277 
21 69.51247 

8 48.31266 

8 .. .. 


42.11 


Refrigerator 


13.56 


Plant protection 

Office force 


4.17 
115.79 


Collectors 


182.33 


Superintendence 

Miscellaneous 


49.38 
24.88 


Canvassers 


24.45 


Administration Salaries 


116.64 


Total 


i 


Average rat 


. . . 4361.3 
e except ac 


min 


$2029.51 



In Table No. 50, in column No. 5, appears the cost per quart of milk 
received, the cost per bottle for bottles washed, the cost per can for cans 
washed, etc., throughout the entire list, each unit cost representing the 
cost of performing the operation for each of the items included in such 
operation. 

In column No. 7 appears the entire costs of the labor performed in 
Rochester for one day, showing that the daily payroll for all of the 



MILK SURVEY OF THE CITY OF ROCHESTER 115 

people employed in the milk business amounts to $2,029.51. In this table, 
for example, also appears the cost of bottle washing under present condi- 
tions, which is $127.55; the cost of washing milk cans, $47.69; the cost 
of pasteurizing, $39.84; the cost of bottling and capping, $112.83; the 
cost of delivering milk at retail, $712.58, for one day. 

This is the cost of labor only, the other cost items appearing in later 
tabulations. 

It has often been alleged that the cost of performing the work of 
milk distribution is smaller for the small dealer than it is for the large 
dealer, and therefore that it is an advantage to any city to have its milk 
distributed by small dealers rather than by large dealers because it is 
more economical. 

In this survey it has been believed that the city would expect to re- 
ceive information on this particular point and, for this reason, the figures 
for the cost of doing business for dealers handling 500 quarts or less, for 
dealers handling 501 to 1,000 quarts, and for dealers handling from 1,000 
upwards, have been separately tabulated for the entire operations per- 
formed by these dealers so far as their labor is concerned ; for example, 
dealers handling under 500 quarts furnish to the City of Rochester a total 
of 23,006 quarts of milk daily, while dealers handling from 501 to 1,000 
quarts handle a total of 15,786 quarts daily. The balance of the milk 
supply, amounting to 38,283 quarts, is handled by dealers whose business 
is in excess of 1,000 quarts a day. 

For these three groups of dealers the figures have been tabulated in 
a new form by using the number of quarts of milk received by each group 
as a divisor. The cost of performing each of the labor operations by 
each of these groups of dealers has been divided by the number of quarts 
of milk received by each group. In this way the unit cost per quart for 
performing each operation has been based on the number of quarts 
handled by each group. These figures are shown in Table No. 51. 



116 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE NO. 51 



UNIT COST OF LABOR DETERMINED ON BASIS OF QUARTS OF MILK 
RECEIVED ON ONE DAY 





qts 
reed. 




ft <- 


'6 






14 


o • 

O '^ 




■i-> 
a" 




!_, 'O 


'^o 


rt CO 








flj ^^ 


ooo 


00 


iri 








-M t^ 


^H Oq 


r> 








r-H LO 


Sod" 


c 


' 




5^ 


O'-H 


".CO 


f< 




Operation. 


u-) 




oc 






O <iJ ^ 


ft 
O 




ft 
O 


-6 


en G 

o 2 






u 


ft OJ 


u. 


ft <u 


il 


ft'S 


<-> ^ 


ft OJ 




M 


^ (J 


U) 


u 


be 


^ (J 


>.£ 






o 


o ^ 


u 


s- 


O 


o ^ 


U ft 


s- 




<-M 




ft 




<-w 


u 


^ o 


"^t: 






-'-' rt 




•^ rt 




■^ rS 


^ t- 


■^ ra 




o 




O 


5- 


O 

u 




^2- 


5^ 


Milk receiving . . 


$ 19.61 


.0007002 


$ 9.45 .0005981 


, $ 18.71 


.0004887 


$ 50.18 


.0006184 


Bottle Washing . 


67.42 


.0024078 


29.17 .001848? 


^ 30.96 


.0008087 


127.55 


.0015540 


Can Washing . . . 


21.43 


.0007653 


8.74 .0005538 


17.52 


.0004576 


47.69 


.0005810 


Appar'tus Wash'g 


24.09 


.0008603 


11.34.0007186 


20.35 


.0005317 


55.78 


.0006796 


Past'iz'g & Cool'g 


5.63 


.0002010 


13.34 .0008453 


20.87 .0005451 


39.84 


.0004854 


Cooling 


21.77 
56.83 


.0007775 
.0020296 


1 4.52 .0002864 
23.62 .0014968 


32.38 .0008458 


26.29 
112.83 


.0013203 


Bottli'g & Cappi'g 


.0013747 


Can Filling 


1.71 


.0000610 




6.57 .0001716 


8.28 


.0001009 


Driving Retail . . 


214.73 .0076689 


104.74 .0066375 


393.1] .0102693 


712.58 


.0086820 


Wholesale . . . . 


32.61 .0011646 


22.24 .0014093 


46.591.0012170 


101.44 


.0012359 


R. R. to Plant. 


25.52 .0009114 


1 10.92 .0006920 


24.901.0006504 


61.34 


.0007473 


Stable 


35.85 .0012625 
15.37 .0005489 
6.29 .0002246 


9.75 .0006178 
5.04 .0003193 
9.281.0005880 


1 35.541.0009283 

1 9.851.0002573 

. 26.541.0006933 


81.14 
30.26 
42.11 


.0009886 


Garage 


.0003686 


Engine Room . . . 


.0005130 


Refrig'tion Plant 


2.13 .0000760 


1 3.271.0002072 


1 8.161.0002131 


13.56 


.0001652 


Plant Protection 




1 


1 4.171.0001089 


4.17 


.0000508 


Office Force . . . . 


29.80 .0010642 


14.52 .0009201 


1 71.471.0018740 


115.79 


.0014107 


Collectors 


90.18 .0032201 


34.541.0021878 


1 57.611.0015047 


182.33 


.0022215 


Superintendence. 








1 49.381.0012899 


49.38 


.0006016 


Miscellaneous . . . 




3.66 


.0002319 


1 21.221.0005543 


24.88 


.0003031 


Canvassers 




1 




1 24.45 .0006387 


24.45 


.0002978 


Administration . . 


1 






116.64.0030470 


116.64 


.0014211 


Total 


|$670.97 


I.023943C 


|$318.14 


.020159? 


|$1039.40|. 0271584 


$2029.51 


.0247145 



In Table No. 51 it appears that the total labor costs in dollars for 
group No. 1 is $670.97 and that the cost per quart for handling and 
delivering milk by group No. 1 is .0239. Group No. 2 dealers, handling 
from 501 to 1,000 quarts, have a daily payroll of $318.14 and the cost 
per quart for milk handling is .0201, which is less than the cost in the 
previous group. On the other hand group No. 3, which includes dealers 
handling more than 1,000 quarts daily, has a daily payroll of $1,035.93, 
and a cost per quart for milk handling of .0270. This is the highest cost 
of all. It must be remembered, however, that this group, with one ex- 



MILK SURVEY OF THE CITY OF ROCHESTER 117 

ception, are dealers who operate pasteurizers and therefore have more 
expensive machinery and also a larger daily payroll. 

In the last two columns of this tabulation appear the total labor costs 
for the entire city based on the volume of milk received daily. 

POSSIBLE REDUCTIONS IN LABOR COSTS 

Each of the operations performed in connection with milk handling 
by the dealer has been treated by this survey as a separate enterprise. 
Independently of the methods of bookkeeping by the milk companies, the 
inspectors employed have visited the plants of the large milk dealers and 
taken careful notes concerning the different operations performed, the 
number of men employed, the volume of work performed by them, and 
the cost, basing this cost on the wages of the men and the number of 
hours they work. This has made it possible to express the work per- 
formed in "man hours" and the wages in dollars per man hour. These 
methods have been used for 54 out of the 136 milk companies in Roch- 
ester. In these 54 were included all of the large companies and a suffi- 
cient number of the small companies to furnish information which would 
fairly represent the costs of the labor performed by all of the small 
companies. 

From the information obtained in this way the cost of each of the 
operations performed has been figured separately from the other opera- 
tions, and the total cost for the entire City of Rochester obtained. The 
cost of the same list of operations has been obtained in the same way 
from milk companies in the cities of Baltimore, Philadelphia, and Ottawa, 
Can. The costs from these other cities are compared with the costs for 
the City of Rochester as the best means of determining whether Roch- 
ester costs are lower, higher, or the same as those in other cities. Each 
of the different milk operations is separately discussed in the following 
paragraphs and tabulations : 

MILK RECEIVING 

At the time the figures were obtained in the month of August the 
average quantity of milk received by the City of Rochester daily was 
82,075 quarts. From the reports obtained by the inspectors 173 men are 
employed in this work for a period of 113.9 hours, which is at the rate of 
721 quarts per man hour at a cost of .000611 per quart, and a yearly cost 
of $18,315.70. In the same way, the figures, for all of the other com- 
panies in all of the cities visited were obtained. A comparison of these 
figures is shown in Table No. 52. 



118 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE NO. 52 
MILK RECEIVING 


Number of 
Company. 


^ > 

1-1 'S 
a u 

3 (U 


<-H in 

O <U 

is 


u 
3 
O 

S 
O 


u u 
a o 

(5^ 


a 
w 

u 
O 

u 


' 


1 


20,417 
16,056 

4,346 
64,800 

9,000 
82,075 
43,070 


5 
4 
3 
12 
2 
173 
4 


25.5 

26 

5 

214 

11 
113.9 

31 


800.6 
617.5 
869.2 
302.8 
818.1 
721.0 
1,386.0 


.000488 
.000493 
.000328 
.000736 
.000436 
.000611 
.000319 

.000611 
.000441 




2 




3 




4 




5 




7-R, Av 

8 




Total present Rochest 
Estimated cost under 


zr cost 

centralized system . . . 


Yearly Cost 

$18,315.70 

13,211.20 


Annual saving . 








.000170 


$ 5,104.50 



In Table No. 52 the most efficient company in the list receives 1,386 
quarts per man hour, while 3 other companies receive over 800 quarts per 
man hour, consequently it seems fair to assume that under properly or- 
ganized working conditions at least 1,000 quarts per man hour could be 
received. On this basis^ and using the present Rochester wage scale for 
milk receiving of .441 per man hour, the total annual cost under a cen- 
tralized system would be $13,211.20. This would mean a saving under 
a centralized system of .000170, per quart, and an annual saving of 
$5,104.50. 

BOTTLE WASHING 

The figures for bottle washing are made up from the same list of 
milk companies in Baltimore, Philadelphia, Ottawa, and Rochester, and 
include the Rochester average. These are presented in Table No. 53. 



MILK SURVEY OF THE CITY OF ROCHESTER 



119 



TABLE NO. 53 
BOTTLE WASHING 



Number of 
Company. 


Bottles 
washed daily. 


Number of 
employees. 


1-1 

o 

■4-t a 








1 


15,229 
13,540 

4,650 
90.000 
10,000 

8,320 
88,784 
46,034 


3 
7 
5 
21 
5 
4 
156 
7 


21 

63 

15.5 
214 

15 

11.33 
125 

64.75 


725.2 
214.9 
300.0 
336.4 
666.6 
734.3 
267.0 
710.9 


.000537 
.001255 
.000907 
.000866 
.000523 
.000517 
.001437 
.000525 

.001437 
.000547 




2 




3 




4 




5 




6 




7-R, Av 

8 




Present Rochester co 
Rochester cost under c 


st 


Yearly Cost 
$46,555.75 


•pntralirpH <;vsf 


em 




17,730.76 




I 






Saving under cen 


tralized 


systerr 


.000890 


$28,824.99 



From the figures in Table No. 53 it appears that the average cost per 
bottle for bottle washing for all of the 88,784 bottles washed daily in the 
City of Rochester is .001437 per bottle, or a yearly cost of $46,555.75. 

It will be noted in the list of bottles washed per man hour that the 
average number of bottles washed by the City of Rochester per man hour 
is only 267, and that with one exception this is the smallest number of 
bottles washed per man hour by any company in the list. Three com- 
panies in the list wash more than 700 bottles per man hour. It seems fair 
to assume, therefore, that under proper business conditions over 700 
bottles per man hour could be washed by the City of Rochester. One of 
the Rochester companies washes more than 700 bottles per man hour. 

If we assume 700 botles per man hour as a reasonable number under 
efficient methods, and use the Rochester average wage scale for bottle 
washing of .383 per man hour, the cost of washing one bottle under a 
centralized system would be .000547, and the yearly cost $17,730.76. 
This would mean a saving on the cost of washing one bottle of .000890, 
and an annual saving of $28,824.99. 



CAN WASHING 

The figures for can washing represent the same list of companies, 
and show that the total number of cans washed in the City of Rochester 
daily is 3,879 by 156 men working for 125 hours at the rate of 31 cans 
per man hour, and at a cost per can of.012294. The complete figures are 
shown in Table No. 54. 



120 



MILK SURVEY OF THE CITY OF ROCHESTER 



. TABLE NO. 54 
CAN WASHING 



Number of 
Company. 



U 



3 C 
^■^ 






U 



1 

2 

3 

4 

5 

6 

7-R, Av. 



897 

800 

150 

2,000 

311 

383 

3,879 

1,222 



5| 
2 
ij 
3| 
11 
l| 
1561 
21 



34.5 
16 

4 
25 

9 

7 

125 

19 



26 

50 

37.5 

80 

34.5 

54.7 

31 

64.3 



Present Rochester cost 

Rochester cost under centralized system 

Saving under centralized system .... 



.011583 
.005728 
.007405 
.005711 
.010099 
.007310 
.0122941 
.006276 

.012294 
.005969 



Yearly Cost 
$17,406.85 
8,450.76 



.0063251 $ 8,956.09 



An inspection of the number of cans washed per man hour in Table 
No. 54 shows that with the exception of one company the number of 
cans washed in Rochester is the smallest per man hour. One company 
in the list washes 80 cans per hour; one, 64; two, 50 or more per hour. 
At the present Rochester cost of .012294 per can, the annual cost for can 
washing is $17,406.85. The company in the list washing 80 cans per man 
hour' does not wash the cans so efficiently as the company washing 64.3 
per man hour. The conditions under which the cans are washed in this 
latter company can easily be imitated by any first class organization, and 
it is therefore proper to assume that under a centralized system Roch- 
eser could wash at least 64 cans per man hour. Using this figure and the 
present wage scale for can washing in Rochester, which is .382 per man 
hour, the cost for washing one can under a centralized system would be 
.005969 per can, or 8,450.76 per year. This would mean a saving of 
.006325 per can, and $8,956.09 per year. 

APPARATUS WASHING 

In estimating the cost of apparatus washing a comparison is made 
betwen the total number of quarts of milk received daily by Rochester, 
and by milk companies in the same lists used in previous tabulations. It 
appears that in Rochester 182 men took part in this operation, with an 
expenditure of 130.5 man hours, and that this washing of apparatus is 
performed for an average of 629 quarts per man hour at a cost of .000680 
per quart. These comparisons are shown in Table No. 55. 



MILK SURVEY OF THE CITY OF ROCHESTER 



121 



TABLE NO. 55 
APPARATUS WASHING 



Number of 
Company. 



<J-I 






o-o 












i2 > 


o o 


u 


n (u 




O 


cr i- 


ji; 




It 





Oh O 



a 



u ^ 



1 

2 

3 

4 

5 

6 

7-R, Av. 



20,417 


23 


32 


16,056 


13 


22.5 


4,346 


5 


10.5 


64,800 


5 


48 


9,000 


7 


7 


8,000 


6 


5.5 


82,075 


182 


130.5 


43,070 


7 


14.25 



638 

713.6 

413.9 
1,350 
1,285.7 
1,454.5 

629.0 
3,022.4 



Present Rochester cost 

Rochester cost under centralized system 

Saving under centralized system . . . 



.000428 
.000427 
.000628 
.000286 
.000271 
.000280 
.000680 
.000125 

.000680 
.000213 



Yearly Cost 
$20,359.70 
6,395.90 



.000467 $13,963.80 



From Table No. 55 it appears that the present Rochester costs are 
.000680 per quart, or a daily cost of $20,359.70. An inspection of the 
number of quarts per man hour for which the apparatus is washed in 
these different companies shows four companies with over 1,200 quarts 
per man hour, and one of these with over 3,000 quarts per man hour. If 
we assume that 2,000 quarts per man hour is a fair estimate for effective 
washing of apparatus, this would be only % of the efficiency of the best 
company, and but 40% more than the efficiency of 2 others in the list. 
If we apply the Rochester wage scale for apparatus washing of .427 to 
2,000 quarts per man hour, the cost per quart for washing apparatus 
under a centralized system would be .000213, and a yearly cost for the 
entire Rochester milk supply of $6,395.90. This would effect a saving of 
.000467 per quart, and $13,963.80 per year. 

PASTEURIZING AND COOLING 
The figures for pasteurizing and cooling for Rochester must be 
divided into two parts, for the reason that while many of the large dealers 
operate both pasteurizing machines and milk coolers, the majority of 
small dealers do not operate pasteurizers, but only operate a cooling ap- 
paratus, consequently in presenting these figures we have listed separately 
the figures for those dealers who operate both pasteurizers and coolers 
and those who operate only coolers. The volume of milk which is pas- 
teurized and cooled was 47,373 quarts daily, and by these dealers there 
were employed 37 men for 79.7 man hours who pasteurized and cooled 
milk at the rate of 594.4 quarts per hour at a cost of .000841 per quart. 



122 



MILK SURVEY OF THE CITY OF ROCHESTER 



The dealers who were cooHng milk only did not all of them report cool- 
ing charges. The number reporting cooling charges were handling 33,266 
quarts with 118 men employed for a total of 64.3 man hours at the rate 
of 517 quarts per man hour, at a cost per quart of .000790. These figures 
are tabulated in Table No. 56. 

TABLE NO. 56 
PASTEURIZING AND COOLING 



Number of 
Company. 



rt N 
C 3 



'a 5S 



1 .. 

2 .. 

3 .. 

4 .., 

5 .. 

6 .. 
7-R, 

*7-R, 



Av. 
Av. 



20,417 

16,056 

4,346 

64,800 

9,000 

8,000 

47,373 

33,266 

43,070 



'->-' in 




O o 


^ 






^^ 


o 




O p 






2 


10 


2 


14 


2 


10 


1 


10 


1 


5 


1 


3.66 


37 


79.7 


118 


64.3 


3 


11.5 



2,041.7 
1,146.8 

434.6 
6,480 
1,800 
2,185.8 

594.4 

517 
3,745.2 



Present Rochester Costs, for companies bottling, pas- 
teurizing and cooling 

•Present Rochester costs, for companies cooling only 

Total present Rochester costs 

Rochester costs under centralized system 

Savings under centralized system 

(*Cooling charge where no pasteurizing is done.) 



.000199 
.000323 
.000675 
.000059 
.000203 
.000195 
.000841 
.000790 
.000096 



.000841 
.000790 



.000091 
.000750 



Yearly Cost 

$14541.60 
9,595.85 



$24,137.45 
2,723.40 



$21,414.05 



If we apply these figures to the volume of milk mentioned at the 
Rochester rate of .50 per man hour, the present cost for companies both 
pasteurizing and cooling amounts to $14,541.60 per year, and for the 
companies cooling only $9,595.85 per year, or a total of $24,137.45 per 
year for the quantity of milk reported. Under a centralized system milk 
can be pasteurized by large sized machinery. The manufacturing com- 
panies many of them build machines capable of pasteurizing 12,000 lbs. 
of milk per hour, which is at the rate of more than 5,500 quarts per 
hour. 

It will be noted in the table that one large company handling 64,800 
quarts daily pasteurizes at the rate of 6,480 quarts per hour. Assuming 
under a centralized system that Rochester could pasteurize milk with ap- 
paratus which would handle 5,500 quarts per hour the cost would be 
.000091 per quart, or $2,723.40 per year. In presenting these figures it is 
necessary to bear in mind that in the tabulation above only 47,373 quarts 



MILK SURVEY OF THE CITY OF ROCHESTER 



123 



were pasteurized out of a total of 82,075 quarts received by the City of 
Rochester at the time these figures were obtained. This is 57% of the 
entire Rochester supply, therefore the costs for pasteurizing milk are 
costs representing the pasteurization of only 57%, and would be much 
larger annually if all of the milk of Rochester were pasteurized by the 
present system. In presenting figures for the centralized system we are 
assuming that the entire Rochester supply of 82,075 quarts is pasteurized 
by modern apparatus. 

The saving per quart under the methods used in the centralized sys- 
tem as compared with the present Rochester methods of pasteurizing is 
.000750. The annual saving by the adoption of the centralized method 
over the present costs for milk which is both pasteurized and cooled and 
for the milk which is cooled only is $21,404.05. If a pasteurizing ordi- 
nance were put in force in Rochester without any effort to centralize the 
business, and the same pasteurizing costs which exist at present were ap- 
plied to the entire supply the total cost for pasteurizing under present 
conditions by the present methods would be $25,192.00 yearly. 

BOTTLING AND CAPPING 
The figures presented for bottling and capping include all of the 
Rochester milk companies which are bottling milk, both in quart bottles 
and in pint bottles. The total number of bottles which are filled daily, 
both quarts and pints, is 83,503. For this work there are employed in 
Rochester 224 persons for a period of 286.9 hours, who bottle and cap 
bottles at the rate of 291 per hour at a cost of .001351 per bottle, or 
$41,182.95 yearly. A comparison of these figures with the figures ob- 
tained from other companies is shown in Table No. 57. 

TABLE NO. 57 
BOTTLING AND CAPPING 



Number of 
Company. 







u 


^ Tr^ 






O 


»o 


-C 


OT.S 


"SS 




r° B 




H ^ 



u- 



1 

2 

3 

4 

5 

6 

7-R, Av. 



15,229 

13,540 

4,650 

90,000 

7,690 

8,320 

83,503 

46,034 



13 
10 

4 
21 

6 

4 
224 

6 



Present Rochester costs 

Rochester Costs imder centralized system 



75 


203 


53 


255.4 


12 


387.5 


192 


375 


24 


3204 


12.5 


665.6 


286.9 


291 


56.5 


814.7 


vstem 


n 



.001430 
.001184 
.000701 
.000799 
.001089 
.000585 
.001351 
.000438 

.001351 
.000561 



Yearly Cost 

$41,182.95 

17,111.55 



Savings under centralized system 0007901 $24,071.40 



124 



MILK SURVEY OF THE CITY OF ROCHESTER 



It will be noted in the column entitled "Bottles per Man Hour," in 
Table No. 57, that the number of bottles filled and capped in Rochester 
is considerably lower than the number for 5 of the milk companies in the 
list. ,By the use of a proper type of machinery and proper arrangement 
for bringing bottles to the machine and taking them away, the work can 
be done most rapidly and efficiently. By such methods it will be noted 
that one company fills and caps bottles at the rate of 814.7 per man hour 
and another at the rate of 665.6 per man hour. 

If we assume that a fair estimate for Rochester would be 700 bottles 
per man hour, the cost of capping and bottling' would be .000561 per 
bottle, or $17,111.55 per year. This would mean a saving on the cost of 
each bottle of .000790, and a yearly saving of $24,071.40. 



CAN FILLING 

The figures obtained from the companies given in Table No. 58 on 
can filling are incomplete. Complete figures were secured from only 
4 companies in addition to the average for the City of Rochester. The 
total number of cans filled in the City of Rochester each day is 638. In 
this work there are 17 men employed for a total period of 20.8 hours at 
the rate of 31 cans per man hour, and at a cost of .012978 per can, and 
a yearly cost of $3,022.20. 

TABLE NO. 58 
CAN FILLING 



Number of 
Company. 


1_ c« 


o <" 


c5 

03 o 


1-.' 

c/) c 

6^ 


Cost per 
can. 




1 


215 

93 

638 

121 

sts . 


1 

1 

1 

2 

17 

1 


2 
4 

5 

2 

20.8 

3 


43 
46 
31 
40 


.005725 
.007505 
.012978 
.010578 

.012978 
.008844 




2 

3 ................... 




4 

5 

7-R, Av 

8 

Present Rochester co 


Yearly Cost 
$3,022.20 


Rochester costs under 
Savings under cer 


centralized sy 


stem . . 
1 




2,059.61 


tralized 


systen 


.004134 


$ 962.59 



If we assume that cans can be filled at the rate of 45 per man hour, 
and use the Rochester wage scale of .398, under a centralized system the 
cost of filling 1 can would be .008844, which gives an annual cost of 
$2,059.61. This shows a saving in the filling of 1 can of .004134, and an 
annual saving of $962.59. 



MILK SURVEY OF THE CITY OF ROCHESTER 125 

DRIVING RETAIL ROUTES AND WHOLESALE ROUTES 

Much difficulty is always encountered in drawing up a statement of 
the cost of milk delivery, for the reason that some milk companies con- 
duct a business almost wholly composed of retail milk, others a business 
in which both retail and wholesale trade are factors, and others a busi- 
ness which is practicaly limited to the wholesale trade. In the matter of 
delivery wagons, some companies divide their business so that retail 
milk is carried entirely by retail wagons, while wholesale milk is carried 
by wholesale wagons. Other companies, on the other hand, carry all 
classes of milk on the same wagons and conduct what is called a mixed 
delivery system. In order to arrive at a fair estimate of the cost of milk 
delivery, therefore, it is necessary to take into consideration these differ- 
ent methods of delivery. Some of the companies which are delivering 
milk at the lowest cost use the mixed delivery system, carrying all classes 
of milk on the same wagons. In the City of Rochester the milk com- 
panies represent all of the types of delivery above mentioned. 

A comparison of the cost of delivery in Rochester with the cost of 
delivery by the other companies in the list is shown in Table No. 59. 



126 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. 59 
DRIVING RETAIL AND WHOLESALE ROUTES 



Number of 
Company. 



o 

^^ 
1-. .-I 

a 









^ C 

a 



a 



!a 



L) 



L Retail 





Wholesale . . . 
Total 


2. 


Retail 

Wholesale . . . 
Total 


3. 


Retail 

Wholesale . . . 
Total 


4. 


Retail 

Wholesale . . . 
Total 


5. 


Retail 

Wholesale . . . 
Total 


6. 


Retail 

Wholesale . . . 
Total 


'-R, Av. Retail 

Wholesale. .. 
Total 


8. 


Retail 

Wholesale . . . 
Total 



16,780 

3,637 

20,417 

15,176 

880 

16,056 

4,346 

4,346 

59,000 

6,800 

65,800 

5,066 
3,292 
8,358 

5,303 
1,052 



57,305 
20,274 
77,579 



49 
3 

52 

55 

1 

56 

15 

15 

148 

2 

ISO 

15 

4| 

19 

26 
2 

28 

304 
179 



25,2091 64 
12,850] 
38,059 1 



445 

18 

463 

495 

2 

497 

157 

157 

2,528 

20 

2,548 

97.5 
24 
121.5 

208 

16 

.224 

1,544.5 
224.5 
1,769 

512 



44.1 



32.3 



27.6 



25.8 



68.8 



28.4 

37.0 
90.0 
43.8 



74.3 



342.4 

1,212.3 

392.6 

275.9 

880 

286.7 

289.7 

289.7 

391.9 
3,400 
432 

823 
439.8 

203.9 
526.0 
226.9 



279 

393.9 
200.7 
594.6 



Present Rochester costs 

Rochester costs txnder centralized system. 

Savings under centralized system 



.013437 



.018646 



.015706 



.015988 



.011111 



.01891 

.012434 
.005003 
.010493 

.007789 
.002528 
.005627 

.010493 
.006571 

.003922 



Yearly Costs 

$297,117.30 

186,078.53 

$111,038.77 



In Table No. 59 is a statement of the number of quarts delivered 
per man hour, and also the number of quarts delivered per wagon. An 
inspection of the number of quarts per man hour shows that company- 
No. 8 handles 74.3 quarts per man hour with a trade consisting of about 
two-thirds retail and one-third wholesale business; and company No. 5 
handles 68.8 quarts per hour with a business consisting of about two- 
thirds retail and one-third wholesale. It will be noted that the business 
for the City of Rochester, which is No. 7 in the list, consists of 57,305 
quarts retail, and 20,274 quarts wholesale, a proportion which is not far 
from the proportion of retail to wholesale business above mentioned. 



MILK SURVEY OF THE CITY OF ROCHESTER 127 

The number of vehicles used in milk delivery for both wholesale and 
retail trade in the City of Rochester is 207 wagons and 71 automobiles, 
or a total of 278. The reports indicate that 304 men are employed in the 
retail delivery and 179 in the wholesale delivery. The figure 179, how- 
• ever, includes a number of the men who are also working on the retail 
delivery. The total number of man hours consumed for Rochester is 
1,769, and the rate of delivery both wholesale and retail is 43.8 quarts per 
man hour, and 279 quarts per wagon for all classes of trade. 

It will be noted that company No. 8 in the list delivers milk at the 
rate of 594.6 quarts per wagon ; company No. 5 at the rate of 439.8 ; com- 
pany No. 4 at the rate of 432; and company No. 1 at the rate of 392.6. 

A review of the volume of milk carried on the wagons of the com- 
panies in the list, and of the opportunities for efficiency under a cen- 
tralized system justifies the belief that the number of quarts per wagon 
delivered by the company showing the highest degree of efficiency, which 
is 594.6 quarts, could be approached under a centralized delivery system. 
The more correct method of measurement, however, is the number of 
quarts delivered per man hour. It will be noted that company No. 8 
delivers 74.3 quarts per man h6ur, while company No. 5 delivers 68.8 
quarts per man hour. We will therefore assume that under a centralized 
system as much as 70 quarts per man hour could be delivered. Using the 
average wage scale for the Cit}^ of Rochester for milk delivery of .46 per 
man hour gives a cost per quart of .006571, and an annual cost under a 
centralized system for the labor of milk delivery of $186,078.53. These 
figures show a total saving under a centralized system for each quart of 
milk of .003922, and a total annual saving on the entire supply of the 
city of $111,038.77. 

It must be remembered that these figures do not include the entire 
cost of milk delivery or the entire savings that can be effected on milk 
delivery under a centralized system. The figures here presented refer 
only to the pay roll or salaries of the milk drivers, and not to any other 
item of expense connected with the cost of distribution. Other such 
items, for example, as the cost of feeding horses, stable charges, the cost 
of wagons, depreciation, the cost of harness and other stable and wagon 
supplies, the cost of ice, etc., are all expenses belonging to the cost of 
milk delivery. These items will be discussed later on. The saving of 
$111,038.77 is a saving strictly limited to the pay roll, or salaries of milk 
drivers. 

If 70 quarts per man hour is a fair estimate of the number of quarts 
delivered, and each driver is employed for an 8-hour day, this would 
mean a total delivery for each man of 560 quarts daily. F'or the entire 
amount of milk sold in the City of Rochester at the time these figures 



128 MILK SURVEY OF THE CITY OF ROCHESTER 

were taken, amounting to 77,579 quarts, a wagon delivery of 560 quarts 
per wagon would require only 139 wagons, instead of 278 now employed. 
This would be a saving of 139 wagons, and would mean therefore a re- 
duction of the present number of wagons by one-half. 

In the experiment in milk delivery conducted under the direction of 
Dr. John R. Williams in 1911, he concluded that one truck drawn by two 
horses and manned by three men could deliver an average of 3,200 quarts 
of milk in one working day of eight hours. This was at the rate of 400 
quarts per hour for 3 men, or 133 quarts per man hour. In some cities 
where the distributing business is in the hands of companies having almost 
a monopoly, the use of two horses on a wagon and two men has greatly 
increased the number of quarts delivered per man hour. Under a cen- 
tralized system where the business of milk delivery was in the hands of 
one company it seems fair to believe that in many sections of the city 
larger delivery wagons than the ong-horse wagons now used could be 
used to advantage, drawn by two horses and operated by two or more 
men, with an increased volume of milk per man hour. 

The figures given above in our estimate are based on actual business 
conditions as at present existing in some cities. 

HAULING FROM RAILROAD PLATFORM TO MILK PLANT 

Many milk factories are so located in the city that they are some 
distance from the railroad terminals at which milk is received, conse- 
quently it becomes necessary to employ trucks for carting milk from the 
railroad platform to the milk factory. Considerable expense attaches it- 
self to the labor of loading and unloading these trucks, even though the 
actual distance traveled between the railroad and the milk plant is short. 
The variation in the distance and in the time consumed makes accurate 
comparisons of costs impossible. 

It is of value, however, to compare the cost of this work among the 
different companies in our list, for the reason that some economies can be 
secured through the trucking of milk under a centralized system, as com- 
pared with trucking the same milk under a competitive system. The 
comparisons of this work as performed by the different companies are 
shown in the Table No. 60. 



MILK SURVEY OF THE CITY OF ROCHESTER 



129 



TABLE No. 60 
HAULING FROM RAILROAD PLATFORM TO MILK PLANT 



Number of Company. 


CJ 

IS 

a 


U O 


c 
a . 


a 






1 


20,417 

16,056 

4,346 

65,800 

6,343 

2,740 

54,072 

43,070 


3 
6 
2 
7 
2 
1 
93 
9 


20 

37 

10.5 

66.0 
6.00 
3.00 
138.8 

81.00 


1,021 
434 
414 
997 

1,057 
913 
390 
532 


.000323 
.000789 
.000702 
.000397 
.000751 
.000475 
.001134 
.000754 

.001134 
.000442 




2 




3 




4 




5 

6 




7-R, Av 




8 




Present Rochester cost 




Yearly Cost 
22,389.10 


Rochester cost under ce 


ntralized syst 


em 




8,723.44 










Saving under centraHze 


d systen 


1. . . . 


.000692 


$13,665.66 













111 Table No. 60 it appears that 54,072 quarts of the milk received 
by the City of Rochester arrives by rail and is carried in trucks, handled 
by 93 employees working 138.8 man hours, at the rate of 390 quarts per 
man hour, and at a cost of .001134 per quart. This means that the annual 
cost of trucking for the City of Rochester under present conditions is 
$22,389.10. This represents the milk hauled from the railroad to the 
numerous plants in the city which obtained their milk in this way. Under 
the present system not only is this milk hauled from the railroad in the 
trucks of the large dealers, but in the wagons of the numerous small 
dealers who obtained their milk from the railroad. 

A study of the number of quarts per man hour in the above table 
shows that two companies handle more than 1,000 quarts per man hour, 
and two other companies between 900 and 1,000. One thousand quarts 
of milk means only 25 40-quart cans, or 31 32-quart cans. This is not a 
very heavy load for a medium size truck, and it seems reasonable to 
believe that under a well organized trucking system one man could handle 
at least 25 40-quart cans, or 31 32-quart cans per hour, from the rail- 
road to the milk plant. On this assumption, using the average wage scale 
for drivers performing this work in the City of Rochester of .442 per 
hotir, the cost per quart under a centralized system would be .000442, and 
the annual cost $8,723.44. This would mean a saving per quart of .000692, 
and an annual saving of $13,665.66. 



130 



MILK SURVEY OF THE CITY OF ROCHESTER 



STABLE AND GARAGE 

Some of the companies in the Hst deliver milk only by the use of 
horses, others use automobiles to some extent. The labor in caring for 
horses and in caring for the automobiles used has been combined for all 
companies in Table No. 61. 

TABLE No. 61 
STABLE AND GARAGE 



Number of Company. 


O <u 


;- O 




1- o 

a 


u 




1 


20,417 

16,056 

4,346 

65,800 

9,000 

8,000 

82,075 

43,070 


12 

7 

6 

22 

3 

4 

168 

11 


115 

62 

36 
198.9 

27 

29 
256.7 

84.2 


177 
258 
121 
331 
333 
276 
320 
512 


.001165 
.000912 
.002108 
.001151 
.000984 
.001589 
.001357 
.000799 

.001357 
.000868 




2 




3 




4 




5 




6 

7-R. Av 




8 




Present Rochester cost . 




Yearly Cost 
$40,661.00 


Rochester cost mider cei 


itralized syster 


n 




26,003.00 


Saving under centralizec 


I system 




.000487 


$14,658.00 



In Table No. 61 it will be noted that for the City of Rochester there 
are 168 men employed in caring for horses and automobiles working 
256.7 man hours at the rate of 320 quarts of milk per man hour, and at 
a cost of .001357 per quart. The most efficient company operates at the 
rate of 512 quarts per man hour. This company has a practical monopoly 
of the business in its city, and its efficiency is due to the fact that its 
horses are all in one large up-to-date stable with every facility for efficient 
handling, and its automobiles in one garage adjoining the stable. 

Under the present system in Rochester there are numerous small 
horse stables and garages scattered throughout the city, each company 
being possessed of one or more. Under this system the present yearly 
cost for labor is $40,661. It is obvious that if these numerous small 
stables and garages were abandoned and the horses and automobiles cared 
for in larger units, there would be considerable saving in these labor 
charges. It is believed to be fair to assume that the efficiency in quarts 
per man hour would approach that of the most efficient company in the 
list. Assuming 500 quarts per man hour as the basis under a centralized 
system, and using the Rochester average wage scale of .434 per hour, the 
cost under a centralized system would be .000868 per quart, and a yearly 



MILK SURVEY OF THE CITY OF ROCHESTER 



131 



cost of $26,003. This would mean an annual saving of .000487 per quart, 
and $14,658 per year. 

ENGINE ROOM AND REFRIGERATING PLANT 

Only a small number of the companies in Rochester operate an engine 
room and boiler, and a still smaller number operate a refrigeration plant. 
These charges have been combined for the purpose of determining the 
total expense for the operation of all of these plants in Table No. 62. 



TABLE No. 62 
ENGINE ROOM AND REFRIGERATING PLANT 



Number of Company. 


in '5 

a 




c 


si 

a 


SO 
u 




1 


20,417 

16,056 

4,346 

65,800 

9,000 

8,000 

55,194 

43,070 


"6 

2 

11 

2 

1 
67 

81 


60 
22 
92 
18 
8 
123.7 
72 


268 
198 
715 
500 
1,000 
446 
598 


.005383 
.001799 
.001710 
.000839 
.000794 
.000750 
.001009 
.000801 

.001009 
.000558 




2 




3 




4 




5 




6 




7-R, Av 




8 




Present Rochester cost 
Rochester cost under ce 

Saving under centralizec 




Yearly Cost 
$20,319.55 


ntralized syst 


sm 




16,714.08 


system . 




.000451 


$3,605.47 



The total number of quarts of milk in Rochester which is distributed 
by companies operating engine rooms and by companies operating refrig- 
erating plants also is 55,194 quarts. The work is performed by 67 men 
working 123.7 hours at the rate of 446 quarts of milk per man hour, and 
at a cost of .001009 per quart. The yearly cost of operating these plants 
under present conditions is $20,319.55. 

An inspection of the figures in Table No. 62 shows great variation in 
the cost per quart and in the number of quarts per man hour. Factories 
Nos. 1 and 8 had a large ice cream business in addition to their milk 
business using the same power plant and refrigerating plant, and the costs 
of operating the entire plant are therefore larger than they would be for 
milk alone. Plants Nos. 3, 5 and 6 are comparatively small, and are 
equipped with power machinery and refrigerating machinery which be- 
cause of its small size cannot give the economies that would be obtained 
from machinery large enough to furnish power and refrigeration for the 



132 MILK SURVEY OF THE CITY OF ROCHESTER 

entire milk supply of the City of Rochester. Plant No. 4, which is the 
largest sized plant in the list, is able to furnish power and refrigeration 
through the labor of 11 employees working 92 man hours. This plant is 
admittedly at the present time not equipped with the best type of equip- 
ment. We have selected as a fair basis for the labor of operating the 
engine room and refrigerating plant of a sufficient size to furnish power 
and refrigeration for the entire milk supply of Rochester the labor of 12 
employees at 8 hours daily, or a total of 96 man hours. Using the average 
Rochester wage scale of .477 per hour, this would give a cost per quart 
for the entire milk supply of 82,075 quarts of .000558 per quart, and a 
yearly cost of $16,714.08. 

In considering this figure, it must be borne in mind that at the present 
time only 55,144 quarts of the milk supply of the city is handled by 
power plants and refrigerating plants worthy of the name. It would be 
expected therefore that considerable additional expense would be neces- 
sary to furnish proper machinery of this kind for the handling of the 
entire milk supply, consequently under a centralized system one would 
not expect to show a saving in this department of the business which 
would correspond to the savings shown in other departments as the result 
of a centralized system. The savings per quart from the above fiigures 
would be .000451, and the annual saving through abandoning the numer- 
ous small boilers, engines, and refrigerating plants, and centralizing this 
work in large plants would be $3,605.47. 

Under such a centralized system the greatest advantage obtained 
would consist in the application of the best possible methods of steriliza- 
tion and of pasteurization and cooling of the entire supply. 

PLANT PROTECTION 
This item of expense refers to the fact that factories which contain 
valuable machinery and equipment must employ night watchmen as care- 
takers. In the City of Rochester at the present time there are only 2 
men employed in this way. The cost of these men is $4.17 daily, as they 
only work part time on this service. This is a yearly cost of $1,522.45. 
Under a centralized system the services of these men would still be neces- 
sary, and we would not anticipate any great reduction in this cost. 

EXPERIMENTAL 
This item refers to the operation of laboratories for the testing of 
milk for butter fat and for bacteria. In five of the plants in the list such 
laboratories are operated, while in the City of Rochester under the 
auspices of the milk dealers themselves there are no such laboratories or 
laboratory workers. The cost of performing this work in the five plants 
mentioned is shown in Table No. 63. 



MILK SURVEY OF THE CITY OF ROCHESTER 



133 



TABLE No. 63 
EXPERIMENTAL 



Number of 
Company. 


> 

a 


^^ CL) 

o >> 

u O 




6 ' 


go 
u 




1 


20,417 

16,056 

4,346 

65,800 

43,070 


4 

4 
4 

5.5 

2 


44 
18 




.000127 
.000234 
.000157 
.000275 

.000199 

.00000 
.000081 




2 




3 




4 




5 




6 




7-R, Av 




8 




Present Rochester cost . . . . 




Yearly Cost 
.00000 


Cost under centralized syst 


em 




$2,080.00 








Additional expense 








.000081 


$2,080.00 



The cost of the operation of laboratories is difficult to standardize, 
for the reason that the amount of work depends greatly on local condi- 
tions, and how much experimental work the management of the milk 
plant desires to carry out. In the plants listed in Table No. 63 it can be 
seen that the first three plants employ four laboratory workers each, while 
plant No. 8 employs only two such workers. Under a centralized system 
it is clear that only one laboratory would be necessary. A fair basis for 
the testing of the milk supply of Rochester under such a centralized sys- 
tem would be two laboratory workers, working a total of 16 man hours 
at a cost of .41 per hour. This would be a cost of .000081 per quart, or 

$2,080.00. 

OFFICE FORCE ■ 

Only a small number of the milk companies in the City of Rochester 
make any attempt to keep books. The cost accountants employed by the 
Survey found only four companies who kept books by methods sufficiently 
accurate to justify the use of the figures as a basis for the costs reported 
by them. The bookkeepers employed by these companies and the small 
amount of bookkeeping done by a number of the other companies in- 
cluded a total volume of business of 56,687 quarts- of milk. The total 
number of persons employed in keeping such accounts for Rochester is 
72, working for a period of 297 man hours, at the rate of 191 quarts of 
milk per man hour, and at a cost of .002042 per quart. Included in these 
72 persons are about 47 who work on an average of about two hours per 
day on their milk accounts. The bookkeepers employed by all of the com- 
panies, including Rochester, and the work performed is shown in Table 
No. 64. 



134 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. 64 
OFFICE FORCE 


Number of 
Company. 


^3 

a 


U O 

s £ 

12; 


c 
H 


a 


go 




1 


20,417 

16,056 

4,346 

65,800 

9,000 

8,000 

56,687 

43,070 


31 
20 

• 5 

51 

5 

6 

72 

Q 


144.6 
120 

41 
370 

42.5 
440 
297.0 

81.0 


141 
133 
106 
177 
212 
182 
191 
532 


.002944 
.003307 
.003508 
.002998 
.002399 
.001750 
.002043 
.000713 

.002043 
.000780 




2 




3 




4 




5 

6 




7-R, Av 

8 




Present Rochester costs . 




Yearly Cost 
$42,263.35 




tralized syster 


n 




23,366.75 










Savings under centralizec 


. sj^stem 




.001263 


$18,896.60 



The present cost of the bookkeeping which is being done is $42,263.3.5 
per year. An inspection of the work performed by the companies in 
Table No. 64 shows a most remarkable difference between the cost of 
bookkeeping in company No. 8, and the cost in all of the other com- 
panies. This low cost might be attributed to a difference in wage scales 
if one overlooked the number of bookkeepers employed, but an inspection 
of the table shows that plant No. 8 employs only nine bookkeepers to 
keep accounts for 43,070 quarts of milk, which is at the rate of 532 
quarts per man hour. No other company in the list employs so small a 
number of bookkeepers for the volume of milk. It might also be as- 
sumed that the books of company No. 8 were not properly kept. This, 
however, is answered by an inspection of the costs in all other depart- 
ments of the business. A review of the tabulations will show that in the 
majority of the labor costs plant No. 8 has lower costs than the other 
companies, and this is convincing evidence that the business in plant No. 
8 is well managed. 

The real reason for the low cost of bookkeeping in plant No. 8 is 
in the system of accounting which has been adopted. There is such a 
thing as too much bookkeeping and too much detail in the accounts which 
are kept of the milk business. What is required is to keep only such 
accounts as will furnish to the management the information necessary for 
administering the business in the most efficient manner. This seems to 
have been accomplished to a remarkable degree in the business of com- 
pany No. 8, consequently with such results in mind it seems proper to 
assume as a basis for a centralized system such a system of bookkeeping 



MILK SURVEY OF THE CITY OF ROCHESTER 135 

as this. It is therefore assumed that under a centralized system for Roch- 
eter the number of employees in an accounting system of the same kind 
would work at the rate of 500 quarts per man hour. Applying the Roch- 
ester wage scale for bookkeepers of .390 per hour would make the cost 
'per quart for the entire milk supply of Rochester for bookkeeping .000780 
per quart, and the yearly cost $23,366.75. 

This would result in a saving of .001263 per quart, and $18,896.60 per 
year. In considering these savings it must be remembered that under the 
centralized system the costs suggested would provide an adequate book- 
keeping system for the entire milk supply of Rochester of 82,075 quarts, 
while the present costs for the city are applied to only 56,687 quarts. The 
extension of the bookkeeping system to the entire supply, therefore, in- 
cludes an expense which is not provided for by the present system. On 
the other hand, the economies under the centralized system are so great 
that they would show the savings indicated. The actual number of book- 
keepers necessary under the centralized system would be 24, working 
seven hours daily. 

COLLECTORS 

One of the most important items of expense in milk distribution 
consists in the labor of collecting money from milk consumers. The ma- 
jority of milk consumers pay cash for milk at least once a week. This 
cash is collected in most instances by the milk drivers. Among the larger 
companies, however, a few special collectors are employed for this pur- 
pose. In securing information from the Rochester companies regarding 
the cost of distribution, the number of hours spent by the milk drivers 
and by these special collectors and the cost were estimated independently 
of the cost of driving retail and wholesale routes. For the 82,075 quarts 
of milk received daily, the number of men engaged in collecting money 
from the reports obtained was 186. It seems probable, however, that all 
of the men engaged in driving both retail and wholesale routes at times 
take part in the work of milk collection. 

The men reported as doing this work were engaged for a period of 
415.2 man hours daily which is at the rate of 128 quarts per man hour at 
a cost per quart of .002221 per quart. In assuming the yearly cost Sun- 
days are omitted as it is assumed that the collectors do not make a business 
■of collection on Sundays. On this basis the yearly cost is $57,069.29. 
Under a centralized system the reduction in the cost of milk collections 
would depend chiefly on the reduction in the number of milk wagons and 
milk drivers. In the table on driving retail and wholesale routes it is 
estimated that the milk supply of Rochester could be delivered with 139 
wagons as against the 278 wagons now used. A comparison of the cost 
of milk collection and of the work performed in this department of the 



136 



MILK SURVEY OF THE CITY OF ROCHESTER 



business by the companies whose figures have been used in previous tables 
appears in Table No. 65. 

TABLE No. 65 

COLLECTORS 



Number o£ Company. 





u5 






.j_j <u 




•a 

V 


o^ 




en 'cj 


u O 

5:; "a 


ag 






Is 


a 


^ 


H 


4,346 


2 


6 


9,000 


3 


25.5 


8,000 


2 


17.0 


82,075 


186 


415.2 



I- O 

^ c 

In rt 

a 




1 

2 

3 

4 

5 

6 

7-R. Av. 



724 

353 
471 
198 



Present Rochester costs 

Rochester costs under centralized system. 

Savings under centralized system 



.000657 

.001210 
.000892 
.002221 



.002221 
.001110 



Yearly Cost 

$57,069.29 

28,534.64 



.001110] $28,534.64 



From Table No. 65 it is to be noted that four of the companies em- 
ploy no collectors. In these cases the entire work of milk collection is 
performed by the milk drivers themselves, the expense of collecting being 
included in the drivers' wages. Company No. 8, which is the most effi- 
cient company in the list, employs no milk collectors, the wage scale for 
milk drivers being no higher than the wage scale for milk drivers in 
Rochester. In order to stimulate milk collection, part of the wages of 
the drivers consists of premiums paid on the amount of money collected. 

Under such conditions it would not be necessary under a centralized 
system to add any expense above the drivers' wage scale for milk collec- 
tion. In order, however, to make the estimate of cost under a centralized 
system a liberal one, it will be assumed that all of the drivers of the 139 
delivery wagons under the centralized system receive additional com- 
pensation above their wages in premiums for milk collection, and since the 
number of wagons is exactly one-half the present number employed by the 
City of Rochester, a fair basis for the cost of milk collection would be 
one-half of the present cost. This would amount to .001110 per quart, 
and an annual cost of $28,534.64. This would result in a saving of 
.001110 per quart, and an annual saving of $28,534.64 on this item. 

SUPERINTENDENCE 

As a special item of milk delivery expense there has been separated 
from the other items the cost of superintendence. This refers to the em- 



MILK SURVEY OF THE CITY OF ROCHESTER 



137 



ployment of men who are not members of the administrative staff, but 
who are in charge of such operations as pasteurizing and other plant 
operations, livery stable, wagon house, and other departments of the 
business. Their salaries do not come under the head of ordinary labor 
or of administrative salaries. In the City of Rochester the majority of 
milk dealers do not employ such men; only four of the larger milk com- 
panies have them on their pay roll. The number of quarts of milk repre- 
sented by these companies is 20,236 quarts. The number of man hours 
which these superintendents work is 73 daily, representing 277 quarts per 
man hour, at a cost of .002440 per quart. The yearly cost is $18,023.70. 
Under a centralized system the number of superintendents necessary 
would be reduced because the departments over which they exercised 
their authority would be centralized. It is estimated that not more than 
four superinendents would be required. Work of superintendents has 
been tabulated in Table No. 66. 



TABLE No. 66 
SUPERINTENDENCE 



Number of Company. 




o w 
S S 

1" 


u 
O 

K 

c 


m o 

6 


u 

at; 




1 


20,417 

16,056 

4,346 

65,800 

8,000 
20,236 
43 070 


3 
4 
1 

4 

4 
8 
1 


24 
36 
10 
40 

32 

73 

7 


851 

446 

851 

1,645 

250 

277 

6,161 


.000673 
.001290 
.001150 
.000477 

.003179 
.002440 
.000093 

.002440 
.000348 




2 




3 




4 

5 

6 




7-R, Av 

8 




Present Rochester costs... 




Yearly Cost 
$18,02370 


Rochester costs under centr 


alized system 
svstem 






10,428.05 


Savings under centralized 


.002092 


$7,595.65 









It will be noted in Table No. 66 that company No. 8 handles 43,000 
quarts daily with one superintendent ; No. 4 handles 65,800 quarts daily 
with four superintendents. It seems a fair basis to assume that the total 
milk supply of Rochester of 82,075 quarts could be handled under the 
supervision of four superintendents working for 10 hours daily (five hours 
Sundays) or a period of 65 hours a week. The present Rochester wage 
scale is .676. With larger responsibility these men undoubtedly would 
have to have as much as .769 per hour, which amounts to $50.00 per 
week. This would make a cost under the centralized system for super- 
intendence of .000348 per quart, or $10,428.05 per year. 



138 



MILK SURVEY OF THE CITY OF ROCHESTER 



This would result in a saving over the present charges of .002092 per 
quart, and $7,595.65 per year. It must be remembered in considering 
these figures that superintendence is exercised at the present time over 
only 20,236 quarts of the Rochester milk supply, while under the cen- 
tralized system this superintendence would be exercised over the entire 
supply of 82,075 quarts. 

MISCELLANEOUS 
In all of the large milk plants there are employed laborers who per- 
form miscellaneous services. They may assist in the labor of various 
departments at difTerent times, and perform odd pieces of work, such 
as the handling of freight, supplies, repairing, painting, cleaning, and other 
such services. Under this item for the City of Rochester are listed 21 
employees in plants handling 17,187 quarts daily, working for a period of 
69.5 man hours daily at the rate of 247 quarts per man hour, and at a cost 
of .001448 per quart. In some of the other companies in the list there 
are also employed men under this head, as shown in Table No. 67. 

TABLE No. 67 
MISCELLANEOUS 



Number of Company. 


i ■ 

.2 > 
Cti (J 

a 


U O 

n 




'^ l-H 

a 


1- ■ 




1 


20,417 

65,800 

8,000 
17,187 
43,070 


5 

5 

3 

21 

3 


30.5 

49 

28 

69.5 

19.50 


669 

1,342 

285 

1 247 

2,208 


.000336 

.000257 

.001000 
.001448 
.000172 

.001448 
.000236 




2 




3 




4 




5 




6 




7-R Av 




8 




Present Rochester costs 




Yearly Cost 
$9,081.20 




tern. . . . 




7,056.18 










Savings under centralize 


i S3'stem 




.001212 


$2,025.02 



In Table No. 67 it will be noted that company No. 8, handling 43,070 
quarts, employs only 3 men as miscellaneous workers, and that company 
No. 4, handling 65,800 quarts, employs only 5 such men. It seems fair to 
assume, therefore, that the Rochester milk supply of 82,075 quarts re- 
quires only six such men. Applying the Rochester wage scale of .358 per 
hour to these men, and assuming that they work nine hours each, or 54 
hours daily, the total yearly cost would be $19,332. This would make a 
cost per quart under the centralized system of .000236 per quart, and a 



MILK SURVEY OF THE CITY OF ROCHESTER 139 

yearly cost of $7,056.18. This shows a saving of .001212 per quart, and 
an annual saving of $2,025.02. It must be remembered in considering these 
figures that the number of quarts of Rochester milk in the above table on 
which the miscellaneous labor was reported was only 17,187 quarts, and 
that under the centralized system the labor is applied to the entire supply. 

CANVASSERS 

Two of the Rochester milk companies employ canvassers. These 
men are used to solicit new trade. Their services constitute a part of the 
present competitive system. Under a centralized system where there 
would be no competition canvassers would not be necessary. The present 
cost per quart for the services of these canvassers is based on 12,836 
quarts handled by the companies which employ them. This is at the rate 
of .001905 per quart, and a yearly cost of $8,924.25. Under the central- 
ized system there would be no such item of expense, and therefore the 
annual saving would be $8,924.25. 

OFFICERS 

The 136 milk distributing companies in Rochester are all of them 
owned by proprietors or stock companies. In one sense, therefore, all of 
these companies are manned by officers. Since, however, the small 
dealers embody in the person of one or two men all of the functions of 
the business, the item of officers is limited strictly to the officers of the 
four large companies in Rochester which reported officers drawing 
salaries. This covers 23,836 quarts of the milk supplied, which is at the 
rate of 2,954 quarts per officer, and their salaries amount to .004893 per 
quart, and annually $42,573.60. Under a centralized system, it is esti- 
mated that not more than three officers would be required at salaries 
amounting to not more than $20,000.00 per year for three. This would 
be at the rate of .000668 per quart. Under the centralized system there- 
fore there would be a saving of .000225 per quart, and $22,573.60 per 
year. The above figures, it must be remembered, are based on the cost 
of officers' salaries for companies handling only 23,836 quarts of milk 
daily at the present time in Rochester, while under the centralized system 
the salaries would apply to the entire Rochester supply. The officers' 
salaries are tabulated in Table No. 68. 



140 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. e 
OFFICERS 





TS 












aj 






t_i 






> 






u 




Number of Company. 


o 


O cn 


I-. 








lA >' 


QJ O 




li'S 








•^u^ 




a u 






J3 ^ 




h;^ 


jj OJ 






§P 


§o 


gc^ 






a 


^ 


a 


u 




1 


20,417 1 






002023 




2 


16,056 y 

4,346 J 
1 65,800 


5 




002693 




3 






.002257 




4 










5 


9,000 


3 


3,000 


.005966 




6 


8 000 


2 


4,000 


.003427 




7-R, Av 


23,836 


8 


2,954 


.004893 




8 


43,070 


1 


43,070 


.000386 














Yearly Cost 


Present Rochester cost . . . 








.004893 


$42,573.60 


Rochester cost under centr 


alized syst 
system .... 


em. . . . 




.000668 


20,000.00 










Savings under centralized 


.000225 


$22,573.60 



ECONOMIES IN MILK DISTRIBUTION 

Comparative Wage Scale 

The economies suggested in the above series of tabulations will un- 
doubtedly be criticised by some on the ground that the wage scale in the 
different companies is different, and this wage scale is the chief reason 
for the difference in costs. This possibility has not been overlooked by 
the Survey. 

It is fully recognized that the difference in wage scales would affect 
the difference in costs. In the estimates made above it will be remem- 
bered, however, that the economies suggested have not been based on the 
cost in dollars, but on the work performed per man hour in the majority 
of instances. Consequently, these economies are entirely independent of 
the wage scale, being based on the efficiency of the work performed in 
the operation and not on the prices paid to the labor. 

In order, however, to completely cover any question concerning the 
difference in wage scale, there is presented below a statement of the wages 
paid by four of the large milk companies of the City of Rochester and 
by the large milk company in the City of Ottawa, Canada. These wage , 
scales are shown in Table No. 69. 



MILK SURVEY 


OF THE CITY OF ROCHESTER 


141 


TABLE No. 69 

COMPARISON OF EMPLOYEES' PAY ROLL AND VOLUME 

OF BUSINESS 




301 


101 


132 


47 


119 . 


Number of emploj^ees on milk 

Total weekly pay roll 

Average rate per week 

Quarts of milk per day 


113 
$2,944.00 
26.05 
43,070 


43 
$1,345.00 
31.29 
9,000 


53 
$1,474.00 
27.81 
8,000 


52 
$1,365.00 
26.23 
9,075 


8 
$254.87 
31.86 
3,000 



From Table No. 69 it will be noted that company No. 301, which is 
located in the City of Ottawa, Canada, has an average rate per week for 
labor of $26.05, while company No. 47, a Rochester milk company, has 
approximately the same wage scale. 

As a further means of comparing the wages paid by the different 
milk companies, the cost per man hour for performing each one of the 
more important milk operations has been independently determined for 
all of the milk companies in the list presented in the previous series of 
tabulations. This list includes three Baltimore milk companies, two 
Rochester milk companies, one Philadelphia, one Ottawa, and the average 
for the City of Rochester. 

■ Those particularly interested in a comparison of these wage scales 
can note the cost for performing the labor of each one of the separate 
operations for each one of the companies mentioned. These figures are 
presented in Table No. 70. 

TABLE No. 70 
WAGE SCALES PER MAN HOUR 



1 


2 


.391 


.304 


.390 


.269 


.301 


.286 


.273 


.204 


.407 


.371 


.290 


.302 


.303 


.279 


.598 


.603 


.425 


.444 


.330 


.342 


.206 


.236 


.481 


.48i 


* 


* 


.190 


.214 


.422 


.443 


.573 


.690 


.225 


.376 









7-R 


4 


5 


6 


Av. 


.437 


.357 


.535 


.441 


.365 


.349 


.390 


.383 


.458 


.349 


.400 


.382 


.385 


.349 


.408 


.427 


.385 


.365 


.427 


.500 
.409 


.374 


.349 


.390 


.393 


.246 


.349 


.427 


.398 


.413 


.800 


.543 


.461 


.413 


.619 


.450 


.452 


.396 


.803 


.427 


.442 


.355 


.328 


.433 


.414 


.581 




.450 


.498 


.600 


.397 


.750 


.448 


* 


* 


* 


.455 


.257 




.400 


.261 


.412 








.534 


.508 


.318 


.390 




.246 


.420 


.439 


.786 




.794 


.676 


.346 




.285 


.358 




.532 




.506 



Milk receiving 

Bottle washing 

Can Washing 

Apparatus Washing 

Pasteurizing and Cooling 

Cooling Only 

Bottling and Capping . . . . 

Can Filling 

Driving Retail 

Driving Wholesale 

Driving, Railroad to Plant. 

Stable 

Garage 

Engine Room 

Refrigerating Plant 

Plant Protection 

Experimental 

Office Force 

Collectors 

Superintendence 

Miscellaneous 

Canvassers 



.285 
.272 
.275 
.260 
.294 

.271 

.434 

.291 
.254 

22>7 



.372 
.476 
.500 



.443 
277 
.403 
.308 
.362 

.357 

.426 
.418 
.418 
.401 
.391 
.555 
.479 
.479 
.208 
.477 
.379 

.577 
.381 



*Combined with engine room charge. 



142 



MILK SURVEY OF THE CITY OF ROCHESTER 



The advantages of a centralized system as compared with the present 
system of doing business, so far as the labor charges are concerned, are 
shown in Table No. 71. 

TABLE NO. 71 

SUMMARY OF ESTIMATED SAVINGS IN LABOR UNDER A 
CENTRALIZED SYSTEM 
{Data from Previous Tables.') 



Operation. 



Cost Under 
Present System. 



OJ-O 






> 



Estimated Cost 

Under 

Centralized 

System. 



> 



Estimated 
Savings. 



P 



Milk receiving 

Bottle crashing 

Can washing 

Apparatus washing .... 

Pasteurizing and cooling 

Cooling 

Bottling and capping . . 

Can filling 

Driving, retail and whole 
sale routes 

Hauling from railroad to 
plant 

Stable and garage 

Engine room and refrig- 
eration plant 

Plant protection 

Experimental 

Office force 

Collectors 

Superintendence ". 

Miscellaneous 

Canvassers 

Officers 



.0006471$ 18,315.70 



Totals 02S812|$730,925.39 



.001644 
.000615 
.000719 
.000513 
.000339 
.001454 
.000107 

.010493 

.000791 
.001436 

.000717 
.000054 

.001492 
.002016 
.000636 
.000321 
.000315 
.001503 



46,555.75 
17,406.85 
20,359.70 
14,541.60 

9,595.85 
41,182.95 

3,022.20 

297,117.30 

22,389.10 
40,661.00 

20,319.55 
1,522.45 

42,263.35 
57,069.29 
18,023.70 
9,081.20 
8,924.25 
42,573.60 



.000467 
.000626 
.000299 
.000226 
.000096 

.000604 
.000073 

.006572 

.000308 
.000918 

.000590 
.000054 
.000073 
.000825 
.001008 
.000368 
.000249 

.000706 



$ 13,211.20 

17,730.76 

8,450.76 

6,395.90 

2,723.40 

17,111.55 
2,059.61 

186,078.53 

8,723.44 
26,003.00 

16,714.08 

1,522.45 

2,080.00 

23,366.75 

28,534.65 

10,428.05 

7,056.18 

20,000.00 



.000180 
.001018 
.000316 
.000493 
.000756 

.000850 
.000034 

.003921 

.000483 
.000518 

.000127 

*.000O73 
.000667 
.001008 
.000268 
.000072 
.000315 
.000797 



; 5,104.50 

28,824.99 

8,956.09 

13,963.80 

21,414.05 

24,071.40 
962.59 

111,038.77 

13,665.66 
14,658.00 

3,605.47 

*2,080.00 

18,896.60 

28,534.64 

7,595.65 

2,025.02 

8,924.25 

22,573.60 



.014062 $398,190.31 



.011750 $332,735.08 
Net. 



*Increase expense. 

In Table No. 71 have been assembled together all of the operations 
performed by the milk dealers of the City of Rochester under the pres- 
ent system, the cost per quart and the cost per year. 

Compared with this in the same table is shown the estimated cost of 
each of these operations per quart under the centralized system and the 
yearly cost. 

In the last two columns are stated the total estimated savings result- 
ing from the establishment of the centralized system. For labor alone it 



MILK SURVEY OF THE CITY OF ROCHESTER 143 

is to be noted that the saving would amount to .00175 per quart, and an 
annual saving of $332,735.08 for labor. This would result from the sub- 
stitution of a centralized system working under such business conditions 
as already exist in the milk industry. 

This Survey presents this figure not as a matter of guess work; but 
as a figure which has been arrived at from close study, and comparison 
with the conditions actually existing in the milk industry to-day, which 
can be imitated by the milk industry of the City of Rochester. 

EXPENSES EXCLUSIVE OF LABOR 

In attempting to secure a statement of the plant or factory charges, 
it was found impossible to secure exact figures through the work of the 
inspectors since these charges, fof the main part, consisted of supplies, 
articles purchased, such fixed charges as taxes, interest, insurance, etc. 
Among the principal articles purchased were included glass bottles, milk 
cans, horse feed, coal, etc. For these items the main dependence was 
placed on bookkeepers or cost accountants. 

An expert firm of cost accountants was emplo3^ed who secured figures 
from four of the large milk dealers of the city whose books were kept 
in a manner which made these figures sufficiently reliable to justify 
a report. These figures have been assembled together and averaged in 
order to secure a statement of factory charges which would fairly repre- 
sent the average of all of these four large companies. They have been 
divided into figures for the retail business and for the wholesale business. 
These averages are presented in Table No. 72. 



144 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE NO. 12 
UNIT PLANT CHARGES BASED ON COSTS OF BIG DEALERS 



Factory. 

Factory supplies 
Light and power 

Coal 

Water 



Delivery. 

Hay and grain 

Blacksmithing 

Repairs to rolling stock 

Barn expense 

Ice 

Bottles 

Cans 

Caps 

Cases 



Office. 

Advertising 
Printing . 
Carfares 
Postage . . , 
Telephone 



Fixed Charges. 

Taxes 

Insurance 

Interest 

Allowances 

Stationery 

Depreciation on — 

Buildings 

Rolling stock 

Machinery and equipment 

Furniture and fixtures . . . . , 

Repairs to buildings 

Accounts charged off 

Sundries 

Rent 



Retail 
unit. 



Total 



.000756 
.001630 
.000663 
.000109 



.004012 
.000929 
.001065 
.000144 
.000152 
.002720 
.000187 
.000459 
.000446 



.000558 
.000485 
.000166 
.000149 
.000227 



.000854 
.000661 
.000735 
.001525 
.000419 

.000823 
.001113 
.0012521 
.000082 
.0010271 
.0008961 
.0014241 



Wholesale 
unit. 



.000215 
.000824 
.000276 
.000045 



.000828 
.000194 
.000222 
.000034 
.000127 
.000739 
.000947 
.000100 
.000118 



.000026 

.000161 
.000135 



.000673 
.000419 
.000242 
.000165 
.000254 

.000547 
.000622 
.001219 
.000041 
.000451 
.000106 
.001020 
.000141 



.025668 .012267 



Item .012267 represents the unit cost of plant charges for wholesale 
bottled milk. Substracting .000957 which represents bottle, caps and case 
charges, gives the figure .011310 which is the unit plant cost for wholesale 
can milk. 

All of the plants of the small dealers were visited by the inspectors 
and many attempts made to secure a statement of the expenditures by 
small dealers for supplies and other expenses independent of labor costs. 
It was found impossible, however, to secure from these men figures of 
sufficient accuracy to justify an independent report. Consequently, the 



MILK SURVEY OF THE CITY OF ROCHESTER 145 

figures for factory costs, excepting labor, for the entire city, have been 
based on the figures obtained from the four large dealers above men- 
tioned. 

Using these figures as a basis for estimate and applying them to the 
milk supply furnished to the city for the three classes of milk — retail 
bottled milk, wholesale bottled milk, and wholesale canned milk, gives the 
results indicated in Table No. 73. 

TABLE NO. 72 

ONE DAY'S TOTAL FACTORY COSTS EXCEPTING LABOR, FOR ALL 
MILK FIGURED ON BASIS OF BIG DEALERS' COSTS. 



Retail — Bottle 


Quarts. 
57305 


Unit Plant 

Cost Per 

Quart Sold. 

X .025668 = 

X .012267 = 

X .011310 = 


$1,470.90 


Wholesale — Bottle 


11386 


139.67 


Wholesale — Can . 


8888 


100.52 










$1,711.09 



From Table No. 73 it appears that the daily costs of supplies and 
other expenses for retail bottled milk is $1,470.90; for wholesale bottled 
milk, $139.67, and for wholesale canned milk, $100.52, making a total 
daily cost for the city of $1,711.09. 

POSSIBLE REDUCTIONS IN FACTORY CHARGES 
(Except Labor) 

Just how much the factory expenses would be reduced by central- 
izing the business is not easy to estimate. One must form a mental pic- 
ture of the present conditions in Rochester by taking into account the 
fact that 136 milk dealers are engaged in buying all of the supplies for 
their business. The majority of these purchase supplies at retail and, 
consequently, at prices much higher than the prices which are paid by the 
very large dealers who buy at wholesale. 

In addition to this it must be remembered that where there are 136 
factories there is an enormous duplication so that the number of articles 
required is much greater ; for example, where milk is bottled each factory 
has its own bottle filling machine. As stated in a previous part of the 
report, there are 25 pasteurizing machines operated in Rochester. All 
of the equipment necessary for the washing of bottles and cans, for the 
care of horses, is duplicated in these factories. Consequently in purchas- 
ing supplies these purchases are constantly duplicated. 

As one method of measuring the reduction in these factories three 
items of expense have been selected. The first of these is heat, light and 
power. It is obvious that there would be great economy if all of the coal 



146 



MILK SURVEY OF THE CITY OF ROCHESTER 



consumed in the 136 factories were centralized in one or two large fac- 
tories. The reduction in steam boilers and in power plants would be so 
great that one would expect a great reduction in coal consumption. 

As a means of forming an estimate on this branch of the business, the 
present costs of light, heat and power for all of the companies in the list 
we have been using is presented in Table No. 74. 

TABLE NO. 74 
HEAT, LIGHT AND POWER 



Number of Company. 



a 



^ 




CO 


u 


O 


rt 


u 


lU 


, , 


>> 


o 


u 



p 



1 

2 ...... 

3 

4 

5 

6 

7-R, Av. 



6,419,255 
5,539,240 
1,265,820 

2,678,005 

1,754,212 

28,316,335 

12,364,485 



$30,326 

18,829 

4,831 

4523 

5,046 

52,244 

23,412 



Rochester cost under present system 

Rochester cost under centralized system. 

Savings under centralized system 



.004724 
.003399 
.003816 

.001689 
.002876 
.001845 
.001893 

.001845 
.001500 



.000345 



Yearly Cost 

$52,244 

42,474 



$ 9,770 



In Table No. 74 it appears that Rochester is now spending $52,244 
yearly for light, heat and power, at the rate of .001845 per quart. One 
company in the list is doing this same thing at an expense of .001689 per 
quart. There is no doubt that, as a result of centralization, the reduction 
would be considerably greater than the difference shown between these 
two figures. 

In order, however, t* be conservative, we have assumed that under 
a centralized system, by abolishing the numerous plants now existing in 
Rochester, and burning coal only in one or more centralized plants, this 
could be done at the rate of .001500 per quart. This would amount to 
$42,474 yearly, and result in a saving of .000345 per quart and $9,770.00 
per year. 

HORSE FEED AND BEDDING 

The cost of horse feed and bedding was obtained from six of the 
companies in the list and for the entire City of Rochester. The figures 
show that there are 228 horses working on the milk wagons delivering 
milk in the City of Rochester, and that the feed costs $59,711.00 per year, 
which is at the rate of $261.89 per horse. 

In Table No. 59, on the subject of milk wagons and milk delivery, 
it is shown that Rochester milk could be delivered with a total of 139 



MILK SURVEY OF THE CITY OF ROCHESTER 



147 



delivery wagons. This included automobiles. If the same proportion of 
automobiles now used, which is 7, should be used under a centralized sys- 
tem, there would be about 38 needed under such system. 

This would mean 101 vehicles drawn by horses and 38 by motor 
■power. 

Under these circumstances, it is estimated that not more than 140 
horses would be required to supply horse power for the one-horse and 
two-horse vehicles used under' a centralized system. 

Assuming that the cost of horse feed per year for these horses would 
be the same as the present cost, which is $261.89, the total yearly cost 
for feeding 140 horses would be $36,664.60. This would result in an 
annual saving of $23,046.40, on the item of horse feed. These figures 
are presented in Table No. 75. 

TABLE NO. 75 
HORSE FEED AND BEDDING 



Number of Company. 


o 
1-1 

§ 2 


Cost of hay 
and grain 
per year. 


t« 

o ^ 
.si <u 
u >. 

o 
O 




1 


82 
63 
25 

26 
29 

228 
125 


$24,180.72 

22,205.20 

9,954.52 

7,622.09 

6,688.22 

59,711.001 

■31,125.931 


$294.89 
362.46 
398.18 

293.16 
230.62 
261.89 
249.00 


Yearly Cost 

$59,711.00 

36,664.60 




2 




3 




4 




5 




6 




7-R, Av 




8 




Present Rochester cost .... 






*Rochester cost under centralized 
Savings under centralized syst( 


system . . . 






;m 






$23,046.40 





'(Assuming 140 horses.) 



LOSS ON BOTTLES 

One of the most important items of expense and one which has re- 
ceived more popular attention perhaps than any other item in the milk 
business is the loss on bottles. It is commonly believed by the average 
citizen that the loss on milk bottles ranges somewhere between two and 
five cents per quart. The actual cost of milk bottles at the present time 
is $8.00 per gross for quarts and $6.75 per gross for pints. This means a 
cost per quart of .0555 per quart bottle, or a little more than 5j^ cents. 

It is undoubtedly true that many bottles are broken and lost, and 
unnecessarily so, and that a considerable saving in expense would result 



148 



MILK SURVEY OF THE CITY OF ROCHESTER 



if these losses were reduced. The actual condition of affairs in the City 
of Rochester has been determined by summarizing the amount of money 
paid yearly for new glass bottles by the Rochester companies which keep 
such accounts and applying this same item of expense at the same rate to 
those Rochester companies which do not keep accounts. This method of 
estimate it is believed is entirely fair for the reason that the smaller milk 
dealers who do not keep accounts undoubtedly sustain greater losses on 
milk bottles and are put to a greater expense in the purchase of milk 
bottles at retail than are the larger milk dealers. 

The total number of milk bottles handled by the City of Rochester 
each day, including quarts, pints and half pints, is 83,503, and annually 
this amounts to 30,478,595. The total number of bottles purchased by all 
of the dealers in Rochester annually is 1,332,432. At this rate each glass 
bottle in Rochester makes 22.8 trips before it is broken or lost. The ex- 
pense of replacing these broken and lost bottles must be paid for by each 
quart of milk sold, and amounts to .002720 per cjuart under present con- 
ditions. This is an annual expense on bottles for the entire city of* 
$68,196. 

Similar figures have been obtained from all of the other companies in 
the list and are presented in Table No. 76. 



TABLE NO. 76 
LOSS ON BOTTLES 



Number of Company 


IS 
'o 

•yj 

a 


2 

"o 

tn 
^ n 


Yearly bottles 
purcbased. 


p. ^ 
a o 


1^ 

o" '^' 

d o 


Yearly 
expenditure 
for bottles. 


1 


15,229 

13,540 

4,650 

72,000 

7,690 

8,320 

83,503 

46,034 


5,558,585 
4,942,100 
1,697,250 

2,806,850 

3,036,800 

30,478,595 

16,802,410 


455,760 
442,684 
106,560 

100,454 

82,252 

1,332,432 

391,219 


12.2 
11.1 
15.9 

34.8 
36.9 
22.8 
42.9 


.004196 
.004584 
.003213 

.002645 
.002805 
.002720 
.002024 

.002720 
.001377 


$23,325 


2 


22,657 


3 


5,454 


4 - 




5 


5,142 


6 


4,210 • 


7-R, Av 

8 


68,196 
20,023 


Present Rochester 


costs . 


68,196 


ralized syste 
ized system 






38,997 










Savings undei 


■ central 


.001343 


$29,199 



From Table No. 76 it appears that the number of trips made by the 
glass bottles of Rochester before they are broken or lost is greater than 
the number of trips made by bottles from companies Nos. 1, 2 and 3. On 
the other hand, company No. 8 handles its business in a manner which 



MILK SURVEY OF THE CITY OF ROCHESTER 149 

results in its bottles making nearly 43 trips before they are broken or 
lost. Figures obtained from company No. 8 for the month of August 
showed that during that month the glass bottles of that company made 
51 trips before they were lost or broken. 

Under a centralized system, where there is no competition and where 
all of the bottles are of the same type and stamped with the same name, 
and collected and delivered by the same wagons, the loss on bottles would 
be reduced to its lowest terms. If milk consumers co-operated to reduce 
these losses, the life of the milk bottle would be greatly increased. 

Forty trips would seem to be a fair estimate for the bottles of the 
City of Rochester under a centralized system. This would mean an ex- 
pense per quart of milk sold of only .001377, and an annual cost for glass 
bottles of $38,997. The savings under the centralized system would be 
therefore .001343 per quart, and $29,199 per year. 

Taking the average reduction in cost on savings resulting from the 
centralized system on the items of heat, light and power, horse feed and 
bedding, and loss on bottles, the figures show a percentage reduction of 
34.4 per cent. 

For purposes of comparison the same items of factory expense were 
obtained from milk companies in the cities of Ottawa, Canada, and Balti- 
more, Md. 

Company No. 8, located in Ottawa, Can., finds that the cost of factory 
supplies is, in many instances, higher even than the figure of the United 
States. It is lower, however, on horse feed. It seems fair to assume, 
therefore, instead of a reduction of 50 per cent., a reduction of about 34 
per cent., as indicated by the three largest factory cost items above men- 
tioned, should be made. Applying this percentage to the entire factory 
costs of Rochester under the present system would result in a cost under 
a centralized system of $409,572, which is at the rate of .014464 per quart. 
This would result in the saving, under the centralized system, in factory 
expenses, of $214,975.85, which is at the rate of .007592 per quart, as 
shown in Table No. 77 . 



150 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE No. n 



TOTAL FACTORY EXPENSES (EXCEPT LABOR) 



Company 
Number 


2 u 

O rt 

a 


>!^ 

73 o 
o^ 


Total Daily 
Factory Costs 
Except Labor. 


a-o 

•so 
p 




1 

2 

3 

4 


6,419,255 
5,539,240 
1,265,820 

2,678,005 

1,754,212 

28,316,335 

2,364,485 

r costs . . . . 
nder Centra 

entralized S 


$179,672.00 

178,785.00 

65,952.00 

55,653.33 

52,976.13 

624,347.85 

129,652.20 

lized System 
vstem 


$ 492.25 
489.82 
180.69 

152.47 

145.14 

1,711.09 

355.21 


.027989 
.032276 
.052102 

.020781 
.030199 
.022056 
.010485 

.022056 
.014464 




5 




6 

7-R, Av 

8 




Present Rochestt 
Rochester cost u 


Yearly Costs 

$624,547.85 

409,572.00 


Savings under C 


.007592 


$214,975.85 



In Table No. 78 it is to be noted that under the present system the 
total expenses outside of labor for the operation of the milk factories of 
Rochester amount to .022 per quart, or $624,548.00 per year, while under 
a centralized system these costs would be only .0144 per quart, or 
$409,572.00 yearly. Centralization reduces these expenses so that there 
would be an annual saving amounting to .007592 per quart and 
$214,976.00 yearly. 

TABLE No. 78 

SUMMARY OF ESTIMATED SAVINGS IN PLANT CHARGES 
UNDER A CENTRALIZED SYSTEM 



Cost Items. 



Under Present 


Sys 


pem 


o2 




*^in 


rt 




<u 


S^ 




-4—1 '-' 


ci O 


•PO 


oU 


p 


H 



Estimated Under 
Centralized 
System 



o, o 

•sot 



oi O 



Estimated 
Savings 



^ u 

+j a; 

•cPh 



<L> bo 

— > 
■gCD 
H 



Horse feed and bedding 

Bottles 

Heat, light and power. . 
All other expenses (except 
labor) 



.002109] $59,711 

.0024081 68,196 

.0018451 52,244 

.0156941 444,397 



.001295 
.001377 
.001500 

.010292 



Totals 0220561 $624,548| | .014464 



$36,655 
38,997 
42,474 

291.436 



,572 



.000814 
.001031 
.000345 



$23,046 

29,199 

9,770 



.0054021 152,961 



.0075921 $214,976 



MILK SURVEY OF THE CITY OF ROCHESTER 



151 



FREIGHT 

The milk supply of the City of Rochester comes into the city through 
four channels : 

24,985 by motor truck. 

3,018 by wagon. 

48,163 by railroad. 

5,909 by trolley. 

The milk which comes by truck, wagon and railroad is paid for by 
cwt. The milk which comes by trolley is paid for by the quart. The 
entire cost of freight per day and per year is shown in Table No. 79. 



TABLE No. 79 
COST OF TRANSPORTING MILK FOR THE CITY OF ROCHESTER 





Quarts 


Cwt. 


Rate 


Total 
Daily Cost 


Motor truck 

Wagon 


24,985 
3,018 

48,163 
5,909 


531.5 
64.2 
1,025 

< 


30c cwt. 
30c cwt. 
24c cwt. 
/2C qt. 

;165,805 


$159.45 
19.26 


Railroad 

Trolley 


246.00 
29.55 


Cost per year 


82,075 


$454.26 



Unit cost per quart 005534 

Estimated saving in freight under a centralized system at 10% is 
$16,580.50. 

In Table No. 79 it appears that the yearly cost of freight is $165,805 ; 
the cost per quart is an average of a little over 5^ cents. 

Under the present system there is no way whereby the cost of this 
freight can be reduced. Under a centralized system, on" the other hand, 
the milk would be shipped from the country to the city to one distributor 
instead of to 136 distributors as under the present system. The shipping 
of the milk from the country to one city distributor would make possible 
a rearrangement of the channels of shipment in several respects, that is, 
the milk which comes by motor truck would be centralized so that each 
motor truck would carry as nearly as possible a full load, and the total 
number of motor trucks would be reduced. The milk which comes by 
wagon in the same way would be centralized so as to provide full wagon 
loads. The milk which comes by railroad, instead of being subdivided 
into separate lots for the different shippers and different distributors, 
would all belong to the same lot and therefore could be packed in car- 
loads, some of which might constitute entire carload shipments and secure 
the freight reduction which the railroads grant to full cars. The milk 
which is shipped by trolley in the same manner, instead of being shipped 



152 MILK SURVEY OF THE CITY OF ROCHESTER 

in separate lots, would all be shipped to the same distributor and land at 
the same receiving station. These changes, all of them, would result in 
economies in the labor connected with the loading and unloading of the 
milk, and would, without question, reduce the work of the railroads and 
trolleys and the work of the trucks and wagons. 

It is difficult to estimate accurately just what this reduction would 
be. The experience of large milk companies in other cities in the reduc- 
tion of freight rates would indicate a possible reduction of 10 per cent, 
in the cost of freight in large lots over the cost of handling milk in small 
lots. It is believed that the reduction would be greater than this but, for 
the purposes of this survey, an allowance of only 10 per cent, in the cost 
of freight will be made. This amounts to a total of $16,580.50. 

LOSS ON SURPLUS 

One of the items which is commonly overlooked by persons not 
familiar with the milk industry is the loss on surplus milk. Contracts 
between milk producers as a rule provide that the distributor shall accept 
all of the milk which the producers furnish. There is no constant rela- 
tionship between the supply and the demand. At certain times of the 
year, especially in the spring months when cows are put out on pasture, 
there is as a rule a production of milk far in excess of the market de- 
mands. In some years, during the months of May and June, this surplus 
exceeds the market demands by as much as 80 per cent. As a rule, during 
the months of July and August, when the hot weather dries up the grass 
and flies are numerous, there is a shrinkage in the production of milk by 
dairy cows, which results in an actual deficiency, so that the quantity of 
milk produced by the regular milk producers supplying the milk dealers 
of Rochester and other cities is less than the market demands. This 
deficiency is made up, if possible by bringing into the city market milk 
from outside source of supply, such as butter factories, cheese factories, 
condensed milk factories, etc. 

The successful milk dealer is compelled to arrange his business so 
that such deficiencies, if possible, will not occur. This means that, for 
most of the months of the year, the dealer is compelled to carry a surplus 
of milk in excess of market demands which ranges annually from 5 to 
20 per cent, of his total business. This surplus milk cannot be marketed 
at the flat price of fluid milk, but must be made up into milk products 
such as condensed milk, butter, cheese, powdered milk, buttermilk, cream, 
etc. The market price for these milk products as a rule brings in to the 
dealer less money than he would receive if the surplus milk could be sold 
at full fluid milk prices. Consequently, in every milk company there is 
an annual loss of money due to the manufacture and sale of surplus milk. 
In most large cities this loss is estimated at about Yi cent per quart. 



MILK SURVEY OF THE CITY OF ROCHESTER 



153 



The figures obtained from the City of Rochester from the four large 
milk companies whose accounts show losses on surplus have been applied 
to the entire milk supply of the city. It is believed that such an estimate 
of the annual Rochester loss on surplus is a fair one since the smaller 
milk dealers as a rule sustain greater losses on surplus milk than do the 
large milk dealers, for the reason that the small dealer is not equipped 
with facilities for manufacturing his surplus milk to advantage. Conse- 
quently, any estimate based on the loss on surplus of the large dealers is 
more conservative than it is believed the actual losses of the small dealers 
really are. 

On this basis figures for Rochester, together with the figures taken 
from the other milk companies in the list, are presented in Table No. 80. 



TABLE No. 80 
LOSS ON SURPLUS 



Number of 
Company. 



J^-d 






^ <u 


o 




•rtp^ 


rt 


-a 


Q 


Q ■ 


J 



C/) . 1 

o o 



1 

2 

3 

4 

5 

6 

7-R, Av. 



20,417 

16,056 

4,346 

65,800 

8,000 
82,075 
43,070 



$ 79.18 

109.83 

29.76 

295.00 

19.47 
328.70 
117.98 



Present Rochester costs 

Rochester costs under centraHzed system. 

Savings under centralized system 



.004433 
.007237 
.008581 
.00500 

.004051 
.004237 
.00310 

.004237 
.003500 



.000737 



$ 28,899 

40,091 

10,862 

107,675 

7,106 

119,976 

43,064 

$119,976 
99,118 



$20,858 



From Table No. 80 it appears that the loss per quart on the entire 
milk supply of Rochester is .004237, and the annual loss $119,976. Some 
of the milk companies in the list sustain greater losses than others. Com- 
pany No. 4 is rated at .005 per quart on a basis of estimates made by 
the Food Administrator of Philadelphia, whose allowance for all milk 
dealers in that city for losses on surplus is ^ cent per quart. 

Company No. 8 is possessed of unusual facilities for the manufacture 
and marketing of surplus milk, not only because its business is centralized, 
but because it is connected with a large ice cream business. It is believed 
that under a centralized system in Rochester similar advantages could be 
obtained and therefore that it would be justifiable to assume that the loss 
on surplus in Rocheser could be greatly reduced. With such a plan in 



154 



MILK SURVEY OF THE CITY OF ROCHESTER 



mind, the figure .003500 is suggested as a fair basis for the loss on sur- 
plus for Rochester under a centralized system. This would mean an an- 
nual loss of $99,118 under a centralized system, a saving of .000737 per 
quart, and an annual saving of $20,858. 

Having now shown in detail the possible savings in labor, factory 
expenses, loss on surplus, and freight, these items can be assembled to- 
gether to show the total possible savings under a centralized system. This 
summary appears in Table No. 81. 

TABLE No. 81 

FINAL SUMMARY OF ESTIMATED SAVINGS UNDER 
CENTRALIZED SYSTEM 





Under Present 
System 


Estimated Under 

Centralized 

System 


Estimated 
Savings 






'rt O 

oU 


^2 
n o 

"cOt 


T! 

w 
^ if) 

.— . </> 
rt O 

O^ 


1-. 

a 

•SO 


rt in 

ot/5 


Freight or trucking. . . . 
Labor (Table No. 71).. 
Factory, other than labor 
(Table No. 11).... 
Loss on Surplus 


.005855 
.025812 

.022056 
.004237 

.057960 


$165,805 
730,925 

624,548 
119,976 


.005270 $149,2251 
.014062 398,190 

.014464 409,572 
.003500 99,118 


.000585 
.011750 

.007592 
.000737 


$16,580 
332,735 

214,976 
20,858 


Totals 


$1,641,254 


.037296 $1,056,105 


.020664 


$585,149 



From Table No. 81 it appears that the total cost of selling milk in 
the City of Rochester under the present system is .0579 per quart, amount- 
ing to a yearly cost of $1,641,254, while under the centralized system the 
cost would be .0372 per quart, or $1,056,105 per year. Under the cen- 
tralized system the savings therefore would be .02 per quart, and $585,145 
per year. 

MILK SALES 

The sale of milk by the City of Rochester at the prices charged by 
each class of dealers has been assembled in the form of a tabulation with 
the object of showing the prices charged by dealers handling under 500 
quarts, dealers handling from 501 to 1,000 quarts, and from 1,000 quarts 
and upwards. 

It is commonly believed that the small dealers charge less money 
for milk than the large dealers. The daily sales of milk for each of these 
groups of dealers and for each class of milk, including retail bottled milk, 
wholesale bottled milk, and wholesale canned milk, have been put together 
and presented in Table No. 82. 



MILK SURVEY OF THE CITY OF ROCHESTER 



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156 MILK SURVEY OF THE CITY OF ROCHESTER 

In Table No. 82 it appears that the small dealer selling under 50! 
quarts charged an average price for retail bottled milk at the time these 
figures were obtained (in the month of August) of .13348, while dealers 
selling from 501 to 1,000 quarts charged a trifle less. Dealers selling 
from 1,000 quarts upwards charged the most. 

For wholesale milk in bottles the small dealers charged slightly less 
than the other dealers, while for wholesale canned milk they charged as 
much as. one cent less than the dealers in the next class, and almost two 
cents less than the large dealers. In examining these figures, however, 
it must be borne in mind that the large dealers are pasteurizing milk and 
that this adds to their cost. It is also true that the large dealers make 
greater expenditures for the washing and sterilization, refrigeration and 
other items of expense connected with the care of milk than is done by 
the small dealers. 

In the last part of this tabulation will be noted the total selling prices 
for the entire City of Rochester average and the total value of the milk 
sold each day, which amounts to $10,001.45. This means that the milk 
sold by the City of Rochester at these prices would bring in an income 
annually of $3,650,529.25. 



XI 

SUMMARY OF MONEY INVESTED IN THE BUSINESS OF 
MILK DISTRIBUTION BY ROCHESTER MILK DEALERS 

In order to arrive at a fair statement of the money invested in the 
milk business of Rochester, the dealers have been divided into groups, 
according to the size of their business. The dealers operating pasteurizing 
machines have been grouped separately for the reason that their in- 
vestment includes a much larger item for machinery, because the pas- 
teurizers, which form the most important part of their equipment, are not 
included in the equipment of the othir dealers. 

Every one of the 25 dealers operating pasteurizers was visited by the 
Inspectors of the Survey, and through conference with them, an estimate 
was made of the value of their land, buildings, machinery and delivery 
equipment. In addition to this, nine of the smaller dealers, handling 
raw milk, were visited, and similar estimates formed of the value of the 
land, buildings, machinery and delivery equipment owned by them. The 
figures obtained from the dealers visited in this way were used as a basis 
for estimating the value of the land, buildings, machinery and equipment 
owned by the remainder of the small milk dealers. 

Values were pro-rated in accordance with the number of quarts 
handled by each dealer. The figures obtained in this way are presented 
in Table No. 83. 

TABLE NO. 83 

SUMMARY OF INVESTMENT OF ROCHESTER MILK DEALERS 



With 
Pasteur- 
izers. 



Without Pasteurizers. 



Investment Not 
Reported. 






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Number of Dairies . . . 
Milk received (quarts) 



25 
A7,272, 



Land 1$ 69,568 

Buildings 237,646 

Machinery | 196,336 

Delivery | 104,535 



Totals 



9 
3,338 

$ 4,250 
8,100 
4,390 



83 
21,071 

$ 31,164 
40,815 
30,490 



7,5001 34,009 



19 
10,243 

10,376 
25,710 
11,278 
25,485 



,085 $24,240|$136,478 $72,849 $233,567 $841,652 



111 
34,702 

45,790 
74,625 
46,158 
66,994 



136 
82,075 

$115,358 
312,271 
242,494 
171,529 



In Table No. 83 the column of figures for the 25 dealers operating 
pasteurizers are actual statements of costs, made by the dealers them- 
selves, with one exception. 



158 



MILK SURVEY OF THE CITY OF ROCHESTER 



The figures in the second column for the nine raw milk dealers re- 
porting investments, are also actual statements made by the dealers them- 
selves. 

The figures in the remaining columns, viz., Dealers handling 400 
quarts or less, 19 dealers handling over 400 quarts, are estimates based on 
the previous figures, as above stated. 

The grand total shows an investment in land of $11.S,358 

" buildings 312,271 

. " machinery 242,494 

and in delivery equipment are included horses and wagons . . . 171,529 

or a total investment of deliveries for the entire city $841,652 

The total quantity of milk received by these dealers at the time the 
figures were obtained was 82,075 quarts daily. Similar figures obtained 
in other cities have in a number of instances shown that the amount of 
money invested by the milk dealer is approximately $10.00 per quart of 
milk handled. The investment of Rochester milk dealers therefore is 
not far from the money invested in the milk business in some of the other 
cities where such figures have been obtained. 

The milk dealers grouped according to the quantity of milk received 
by them, are shown in Table No. 84. 

TABLE NO. 84 

ROCHESTER MILK DEALERS— GROUPED ACCORDING TO MILK 

RECEIVED ■ 



Size of Business. 






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400 or less 
401- 500 ., 
501- 700 .. 
701-1,000 ., 
1,001-2,000 ., 
Over 2,000 .. 




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5.1% 
8.1% 
11.1% 
10.0% 
36.7% 



PROFIT AND LOSS 
Having now presented the costs of labor performed and the plant 
costs, the cost of freight and the loss on surplus, and also the prices re- 
ceived for milk, it is proper to take up for consideration the question of 
profit and loss. The total amount of money received for milk when com- 
pared with the total expenses should enable us to determine whether the 
milk distributors of the City of Rochester are making money or losing 
money at present prices. In order to arrive at an estimate of this, the 



MILK SURVEY OF THE CITY OF ROCHESTER 



159 



cost of milk purchased from the farmer has been added to the other 
costs in the Hst. 

The price paid to the producer for milk during the month of Augus1> 
when these figures were obtained was .072551. Adding this price to the 
other items of expense for each class of milk sold in Rochester, including 
retail bottled milk, wholesale bottled milk and wholesale canned milk, 
the entire cost of handling Rochester milk is obtained. The selling price 
and the profit and loss are shown in Table No. 85. 

TABLE NO. 85 
TOTAL COST PER QUART (THREE CLASSES) OF ROCHESTER MILK, 

AUGUST, 1919 



Expense Items. 


'6 






Cost of fluid milk 


.072551 
.005534 
.004237 
.028149 
.025668 


.072551 
.005534 
.004237 
.021572 
.012267 


.072551 


Freight 


.005534 


Loss on surplus 


.004237 


Labor charges 


.018711 


Factory expense 


.011310 


Total 


.136139 
.135380 


.116161 
.112890 


.112343 


Selling price 


.107770 






Loss 


.000759 


.003271 


.004573 



From Table No. 85 it appears that during the month of August there 
was an actual loss on all three classes of milk sold by all dealers in the 
City of Rochester. While these losses were slight, yet they constitute 
convincing evidence that, under present conditions, the conduct of the 
business in Rochester at the prices stated was not profitable. 

It must be borne in mind that the month of August is what is known 
as a short month ; that is to say, due to the vacation period, the quantity 
of milk sold in Rochester is less than the normal quantity demanded by 
the city. It has been stated that the volume of milk required by the city 
averages at least 10 per cent, more than the volume of milk sold in 
August. If this is so, such an increase in volume would wipe out the losses 
noted in the above table and would enable the milk dealers to make a 
moderate profit during some months of the year. This could only be 
accomplished, however, through an increase in the retail price and pro- 
vided the price paid to the producer did not correspondingly increase. 

The report of the expert cost accountants who examined the cost 
accounts of four of the large dealers in Rochester for the business trans- 
acted during the year ending December 31, 1918, shows that one dis- 
tributor made an annual profit of $3,824.43 ; anotlfer an annual loss of 
$19,374.93; another a profit of $3,147.92; and another a loss of $2,156.30. 



160 MILK SU RVEY OF THE CITY OF ROCHESTER 

These profits and losses are based exclusively on the business of buying 
and selling fluid milk, and do not include the business of buying and 
selling cream. It is believed that in some of the companies mentioned 
the business of buying and selling cream brings in larger profits than the 
fluid milk business. The profits and losses above mentioned are additional 
evidence that at present prices under the existing competitive system the 
fluid milk business does not produce large profits. 

CONTROL OF MILK SUPPLY BY ROCHESTER HEALTH 

DEPARTAIENT 
The City of Rochester has no milk regulations of its own. In the 
fall of the year 1914, the New York State Public Health Council at 
Albany published a Sanitary Code containing a chapter on Milk and 
Cream. 

Regarding enforcement of these regulations, the Code states in regu- 
lation 15, as follows: 

"Regulation 15. When to take effect. Every regulation in this chapter, unless 
otherwise specifically stated, shall take effect throughout the State of New York, 
except the City of New York, on the 16th day of November, 1914." 

This means that these regulations shall apply to every city and town 
and village in the State of New York. 

Review of the character of the regulations contained in the report 
makes it very clear that every grade of milk, both raw and pasteurized, 
existing in the State of New York, in towns and villages as well as in 
cities, is recognized and perpetuated by this report. In short, the State 
authorities, in issuing these regulations, did so with the full knowledge 
that the same must be adapted to and available for country villages as 
well as for cities. 

A special provision is made in the regulations on behalf of first- 
class cities and other municipalities which may desire to safeguard their 
milk supplies by more modern methods than those provided for in the 
regulations, which is in these words : 

"Regulation 14. Supplementary regulations of local authorities. The health 
authorities of any municipality may, in their discretion, increase the stringency of 
these regulations, or add to them in any way not inconsistent with the provisions 
thereof." 

This means that Rochester, or any other city, may adopt milk regu- 
lations of their own, provided these are not inconsistent with the mini- 
mum requirements of the State regulations. 

From the reports published by the Bureau of Health of the City 
of Rochester during the past ten years, a tabulation has been drawn up 
showing the work performed. Reports are incomplete and therefore the 
tabulation is lacking in several important points. There is no complete 
report published lat^ than the year 1917. 

The figures reported are shown in Table No. 86. 



MILK SURVEY OF THE CITY OF ROCHESTER 



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162 MILK SURVEY OF THE CITY OF ROCHESTER 

In Table No. 86 the statement is made that in the year 1917 the 
Department was equipped with seven milk inspectors. In the personnel 
of the Health Bureau in the report for 1917 are given the names of the 
chief milk inspectors, one meat and assistant milk inspector, and five 
assistant sanitary milk inspectors. These are in addition to the names 
of the biologist and chemist. Whether this means all occupied the same 
positions at the same time or replaced each other does not appear in the 
report. 

Dr. George W. Goler, Health Officer, in his testimony at a public 
hearing held in the City Hall, on July 16th, made the following statement 
regarding the control of the milk supply by the Rochester Health De- 
partment : 

"In the early days, in the shipped milk as well as in the made milk, 
we were, of course, drinking vast quantities of manure in our milk. 

"As far as we could, we inspected the dairies of the men who were 
making the milk. We went into the country and inspected their dairies. 
We could not do very much because we never had more than two and a 
half men to protect our milk supply. 

"A few years later we had difficulty because, very unfortunately, a 
man was called to the police court bench, who was a law unto himself, 
who dismissed milk cases just as rapidly as we brought them before him, 
and who seemed to think he was the defender of all the bad milk men in 
town. He was re-elected for eight years and we v»^ere practically unable 
to get a conviction, no matter what the man's offense might be against 
the milk ordinances of the City of Rochester. 

"There was a notorious individual who was a typhoid carrier and 
who had it in his family, who was responsible for twelve cases of typhoid, 
three or four of which died. We were unable, through the police at that 
time, to either keep that man from peddling milk in Rochester or to get 
him arrested for selling milk in Rochester, and as the result of that we 
had thirteen cases and three or four deaths. 

"We had still another example of just that sort of thing. A woman 
who had typhoid was selling milk in an establishment where she had 
someone sick with typhoid and we could not prevent at that time that 
person from coming into Rochester with milk. That would not be so now 
or that would not have been so a few years past. It was so then. 

"Then there was a period along about 1905 when we attempted to 
show that there was a very considerable number of cattle furnishing milk 
to Rochester which were infected by tuberculosis. That is, I do not mean 
by that that we were interested in the cattle infected by tuberculosis in a 
mild degree. That was not our interest. We were interested in some 
of the cattle that were infected with tuberculosis which we know as open 



MILK SURVEY OF THE CITY OF ROCHESTER 163 

infections; that is, infection of the intestinal tract or respiratory tract, 
so that organisms from the cow, either from the intestinal end — which is 
the more frequent line of commtmication between the milk and home — 
or the respiratory end, might get into the milk ; so we instituted our new 
guinea pig test. We had numbers of animals and we took milk from the 
different herds in the country and injected these animals. When we found 
any of the animals afflicted with tuberculosis, we had a physical examina- 
tion made of the herd. That physical examination together with the ani- 
mal test, was a sufficient test to determine a very considerable number of 
herds of cattle that were profoundly tuberculous. Twenty per cent, of 
all the cattle we tested were found to be tuberculous. We were getting 
on swimmingly. Volunteers were coming forward to have their cows 
tested. Then we came to a standstill because of the large milk companies 
and the objection the large milk companies made was, in substance, that 
we were interfering with their business and it did not pay to do this 
work. They had no interest in children. They were simply interested in 
business. We had to stop. I think we had several hundred cattle killed 
that were profoundly tuberculous. We had certificates coming in to us 
from veterinary surgeons certifying to the fact that a herd of forty or 
fifty or seventy or eighty cows is absolutely free from tuberculosis, and 
we tested out the herd and found twenty of them were profoundly tuber- 
culous. We very clearly understand that you cannot have absolutely 
clean milk. You do not get absolutely clean milk when you get certified 
milk. You do not get absolutely disease free meat unless you want to pay 
five dollars a pound for it, and you cannot afford to pay that. You want 
relatively clean milk and you want relatively disease free meat. 

"In reference to this work, there is still another factor I want to 
speak of. That is the attitude of the milk commission. The milk com- 
mission, as I have said before, has interferred with our work more than 
all the milk men." 

Q. What milk commission? 

A. I mean the Monroe County Milk Commission, the certified milk 
commission. When we organized the Milk Commission, we assumed 
that a large part of the work of the Milk Commission was going to be 
such as would raise the character of all the milk in Rochester instead of 
trying to improve a few two or three hundred quarts of milk from what 
it was in the earlier days for the benefit of people who can afford to pay 
for it. What did they do? They improved the quality of a few hundred 
quarts of milk and then turned the work over to the large companies, and 
through the large companies they gave to the people of Rochester the 
idea that being the product of the large companies, it was equivalent to 
certified milk, and it wasn't. 



164 MILK SURVEY OF THE CITY OF ROCHESTER 

Q. In regard to the matter of tubercular inspections ; I understood 
you to say that you were stopped by the milk dealers ? 
A. Yes, sir. 



Q 

A 
to you 

Q 
A 

Q 

A 

Q 



Tell us how they stopped it? 

I would rather tell you from the record and submit the letters 



You have the letters, a complete record of that blocking? 
Yes, sir. 

That is available so you can bring it in on short notice? 
I don't know how short. I can bring it in to you to-morrow. 
We had before us the matter of the big dealers compelling you 
to discontinue the tubercular test. I understood you to testify that you 
could show how they did it by your records. Are you ready to proceed 
with that? Give us the history of it. 

A. I could not do that because I don't know it. In giving you what 
I have, I am dealing with one company; there were two companies, but 
one company was just as bad as the other. 

Q. Well, you discontinued the tubercular test because you were 
compelled to? 

A. Yes. 

O. You know what compelled you to? 

A. I am ready to tell you. 

O. That is what we want to know. 

A. There is no question about the power of the Health Oflficer. 
That has been passed upon by more than one corporation counsel. In 
the latter part of the year 1909, down to the fore part of 1910, we began 
to test out all the herds; tried to test all the herds supplying Rochester 
with milk by what was known as the physiological test, using guinea pigs. 
We had then — 1909 — we had up to the time we discontinued our tests, 
tested the supply of 41 retailers and offered by 28 producers. Seven 
hundred and fifty-seven cattle were tested, and 671 actually were tested 
through the efforts of the Chief Milk Inspector. Two hundred because 
the owners asked for the test. And out of the total number tested, 210 
cattle were killed. Thus, out of approximately 8,000 cattle supplying 
Rochester with milk, more than 20 per cent, of them were tested as the 
result of this work, and as a result of the test, approximately 12 per cent, 
re-acted and were killed. At that time Mr. Owen was Commissioner of 
Public Safety and under date of April 9, 1910, I made a report to him. 
I said in that letter: 

"We have prosecuted our preliminary work against tuberculosis in milch cattle 
for a little more than a year. Of the 8,000 cows from 700 farms we have had 
tested more than 1,000 cows, and had 124 killed. In one herd where the evidence 



MILK SURVEY OF THE CITY OF ROCHESTER 165 

was obtained through the guinea pig test, 52 re-acted out of 100, and 26 of them 
were so badly aflfected by tuberculosis that they had to be tanked for phosphate. 

"One of the excellent outcomes of this work has been the voluntary requests 
for the testing of herds by men whom the milk inspector has visited. The applica- 
tions for tests have not all been voluntary, but have been due largely to the 
presentation of facts to the owners by the milk inspector. In one of the herds 
recently picked up by Mr. Marshall, the whole herd of 21 cows re-acted. 

"The above are some of the facts that I will present to the people of the City 
of Lawrence, Mass., on Monday evening next." 

The herd referred to having 21 cows which re-acted to the test I 
referred to this morning. That herd we had a certificate from a veter- 
inarian stating that the, cattle were all in good condition. In the early- 
part of the same year, after we had tested a number of cattle from the 
producers and reported the fact to the producers as well as to the dis- 
tributers, we came to the Big Elm Dairy Co., and we tested a sample of 
milk from them in the usual way by injecting the sample into guinea 
pigs, using two pigs, the animals both re-acting. I served upon them 
a notice requiring them to have their producers submit their cattle to the 
State tubercular test under the auspices of the State who were then mak- 
ing tubercular tests. They objected to my decision and appealed to the 
Commissioner of Public Safety. I said at that time in my letter, quoted 
under date of July 8th, 1910, to the Big Elm Dairy Co. : 

"Gentlemen : — 

Those of your producers who do not comply with my direction in the matter of 
a State tubercular test will have their milk excluded from Rochester after 
January — , 1910." 

"They made an appeal : 

(Reading from letter on page 470 of letter book, dated June 28, 1910, from 
Health Officer Goler to the Commissioner of Public Safety.) 
"Sir :— 

"At 9 :30 this morning I received a telephonic notice from Mr. Hughes that 
the hearing in the matter of the Big Elm Dairy Company had been postponed 
from the date set by you, Wednesday, to Friday, and perhaps next week. 

"Shortly after the Big Elm Dairy Company was found selling milk from 
tuberculous cattle I exhibited to you and to His Honor the Mayor, the animal 
which was infected from its milk. 

"My object in writing this letter is that you may know that I believe the Big 
Elm Dairy Company is striving to gain time, and that in doing so it may still 
further infect the children of Rochester with tuberculosis, and that it is further 
seeking to gain time so that its producers with tuberculous cattle may swap cattle 
or get rid of them, and thus help to bring any State test that may be made into 
ill repute. 

"I object to the delay in the hearing in this matter because it will work 
further harm in raising the question among men whose cattle are found tuberculous 
by the tests we are making; as to whether they should not resort to the same 



166 MILK SURVEY OF THE CITY OF ROCHESTER 



methods of trickery that this company always resorts to in cases where the question 
of the better conservation of the milk supply arises in this city. 

"We have proven that in similar tests of 1,665 of the 8,000 cattle furnishing 
Rochester with milk, 19% re-acted and were slaughtered. Some were so badly 
infected with tuberculosis that they had to be tanked for phosphate and we have 
proven the Big Elm Dairy Company to be selling milk from some cattle fit for 
fertilizer, but not fit to furnish milk for our babies. 

"Respectfully submitted, 

"G. W. GOLER, 

"Health Officer." 

(Letter of direction to Dr. Goler from Commissioner Charles H. Owen, dated 
July 8th, 1910.) 

"G. W. Goler, M. D., Health Officer. 
"Dear Sir : — 

"Relative to the appeal of the Big Elm Dairy Company of this city from your 
order of June 20th, upon which decision was rendered by me this day, would request 
that your bureau procure samples of milk from every producer shipping their 
product to this city whose herds have not been subjected to the tuberculin test, 
or application for test filed with the State Commission, and that the samples of 
these various producers as soon as practicable, be subjected to the guinea pig test 
for the detection of tuberculosis. 

"After making these tests, any of the herds which, 3^ou believe to be infected 
with tuberculosis, I desire that you report the same to this office and I will im- 
mediately notify the State Commission of Agriculture of your findings, and request 
that they make a tuberculin test without waiting for the owners of the herds to 
formally sign an application for such inspection. 

"I am of the opinion that eventually all milk shipped into this city should be 
tuberculin tested, and this Department is at the present time considering the issuing 
of an order making it obligatory upon the part of all milk producers shipping milk 
into this city to have their herds tuberculin tested. I realize that such an under- 
taking will require some months' time, and, after further consultation, this Depart- 
ment will probably set some future date, after which all milk will be excluded from 
the City of Rochester which has not been tuberculin tested. 

"Very truly yours, 

"CHARLES S. OWEN, 
"Commissioner of Public Safety." 

Nearly ten years ago and no order has been issued. 

(Letter of Dr. Goler from Commissioner Owen, dated July 8th, 1910.) 
"In the matter of the appeal of the Big Elm Dairy Company, Rochester, N. Y., 
from the following order of the Health Officer: 

,-r,. ^ . June 20, 1910. 

Big Elm Dairy Company, 

'Gentlemen : — 

'Those of your producers who do not comply with my direction in the matter 

of a State tuberculin test, will have their milk excluded from Rochester after 

Monday, June 27, 1910. 

'(Signed.) G. W. GOLER, 

'Health Officer.' 



MILK SURVEY OF THE CITY OF ROCHESTER 167 

"As provided by the Charter of the City of Rochester, a public hearing was 
held in the office of the Commissioner of Public Safety on the above appeal, 
Friday, July 1, 1910. The Big Elm Dairy Company appeared by its President, Mr. 
A. E. Wood and by counsel. 

"By the testimony of Inspector Brownell of the Health Bureau, it was shown 
that on or about April 7th, 1910, acting under instructions of the Health Officer, 
he procured a sample of cream and a sample of milk from the separator operated 
by the Big Elm Dairy Company at their plant on Exchange Street in this city. 
After passing these samples through the laboratory of the Health Bureau, they 
were subjected to the guinea pig test used by the Health Bureau for detecting 
tuberculosis in cattle. The result of the test was positive and was the basis for 
the order made by the Health Officer, which is now appealed from. 

"By the testimony of two witnesses under oath, it was shown that the milk 
being run through the Big Elm Dairy Company's separator at the time these 
samples were taken by Inspector Brownell, was from one of the producers shipping 
milk to this company and not from several producers. In view of the evidence of 
these two witnesses, and as a matter of justice to all concerned, I am of the opinion 
that for the present at least, the order of the Health Officer should be modified 
so as to apply only to the milk of the producer from which the samples in question 
were taken. It is therefore, 

'Ordered, That the order of the Health Officer, dated June 20, 1910, and 
directed to the Big Elm Dairy Company, be, and hereby is modified, so as to call 
for the exclusion from the city of the milk and cream produced by J. F. White 
& Company, until such time as the J. F. White & Company herd of cattle is sub- 
jected to the State tuberculin test. 

'(Signed.) CHARLES S. OWEN, 

'Commissioner of Public Safety.' 

"To G. W. Goler, M. D., Health Officer." 

(Reading of letter from G. W. Goler, Health Officer, dated July 11, 1910, to 
Charles S. Owen, Commissioner of Public Works.) 

"Hon. Charles S. Owen, Commissioner of Public Works, 

Rochester, N. Y. 
"Sir:— 

"Beginning a year ago last January the Health Bureau has been working to 
prove by the guinea pig test, the general provisions with which you are familiar, 
the number of retailers selling milk in Rochester from cattle whose milk is capable 
of producing marked naked eye lesions of tuberculosis in those animals. 

"Rochester receives daily 80,000 quarts of milk from 8,000 cows from 700 
farms. This of course does not include the cream received. With our limited 
force of milk inspectors, we have not been able to determine just how much cream 
is received, for it comes from very many small farms and is received at creameries 
in the neighborhood of Newark, Horseheads, Norwich, Conesus, and some other 
places. The milk and cream received into the city are disposed of by 133 dealers, 
all of whom are, and have been for some time, selling milk without licenses. 

"In beginning our work in an attempt to further protect child life in Rochester, 
and considering the limited facilities, we took samples of milk in original packages, 
or in sterile pine bottles from the retailers, because we believed that the retailer, 
whether getting milk from one or many producers, should be held responsible for 
the milk he sold, and that if he be found with milk in his possession capable of 
producing marked naked eye lesions of tuberculosis, the burden of proof should 



168 MILK SURVEY OF THE CITY OF ROCHESTER 



then be upon him to show that his entire supply was free from tuberculosis by the 
State tuberculin test of his herds, applied by the Veterinary Division of the State 
Department of Agriculture. 

"For something more than a year past we have worked upon this plan. Mr. 
Marshall, our Milk Inspector, has been most diligent; our chemist, Mr. Milligan, 
has pursued this work with enthusiasm; and now at the end of the period which 
will expire at the close of the current month, we shall have finished the test of the 
retailers upon this plan. We planned this work to end with the beginning of 
summer, because the work of the summer milk stations then begins. Vacations 
also begin, and the summer activities of the Bureau are sufficient to occupy all of 
its energies. 

"The plan which you request us to carry out in your letter would involve the 
test of 500 producers. Estimating for deaths that might occur as a result of 
acute infections, at least 1,200 guinea pigs would be required in lots of 106 each. 
New pens and new stock pens would be required. Our centrifugal machine would 
have to be repaired and a new centrifugal machine provided. New glasses for 
the centrifugal machine would have to be made, and these in the winter we have 
never been able to get in less than a month or six weeks. 

"The glass factories are shut down now, and an order could not be placed for 
them before the 15th of September. We have on hand just one set of glasses. If 
we should adopt the plan contained in your letter and should work twice as fast, 
assuming that supplies and apparatus were in readiness, it would take us more than 
a year to finish the work. 

"The test known as the guinea pig test, with which we are working, is always 
positive when it is positive; but when it is negative, it does not prove that the 
cattle tested are free from tuberculosis. In our work thus far, not counting the 
samples of retailers that we already have under way, and that will be finished by 
the end of the month, we have tested in round number 1,700, more than 20% of 
the 8,000 cattle supplying Rochester with milk. More than 200 of these cattle have 
been killed, i. e., more than 12% of the cattle found infected through our work. 

,"Mr. Marshall, the Milk Inspector, has persuaded 41 of the 58 owners of the 
herds tested by the guinea pig test, to have their herds tested by the State Veterin- 
arian, by representing to them the economic value of this test. He has gone to 
these men and carefully presented the case to them, filled out a form such as the 
enclosed, and forwarded the form to Albany. 

"All that I have said in this letter of course deals with milk only, and not with 
cream. The people in Rochester are buying tuberculous cream from cattle kept 
in the filthiest conditions, from creameries filthy in the extreme, and the large 
companies who sell cream, to the people in this vicinity are getting cream from 
such places. So far as I have been able to determine, I have not been able to 
stop this practice. 

"If, after my explanation contained in this letter, you still believe that the 
work should be carried on as requested in your letter of July 8th, will you not direct 
by order that the work be so carried on. 

"Respectfully submitted, 

(Signed.) G. W. GOLER, 

"Health Officer." 

That is the way they stopped us. 

Q. Well, Dr. Goler, I understand that as a result of this hearing 
before Commissioner Owen, it was determined by him that the milk you 



MILK SURVEY OF THE CITY OF ROCHESTER 169 

tested and found re-acted on the guinea pigs, was from the dairy of the 
J. R. White Company. 

A. That was one of the dairy companies. The J. R. White Com- 
pany were dealers in high grade cattle, and their cattle were sold. They 
were very careful about their cattle. All their calves which were very 
precious to them and very valuable, were being treated by killed cultures. 
All tuberculins by themselves. No tuberculins near immunes in order 
to protect them against tuberculins. But they are willing to take tuber- 
culins and sell the milk to Rochester, and that was the only recourse we 
had then. Another lot of cattle came along that were tubercular, and we 
could not do anything after that. 

Q. You found that milk that was complained of here in the Big 
Elm Dairy Company came from the J. R. White Company? 

A. Yes. 

O. And you requested them to make the test ? 

A. We had already. 

Q. They were excluded until the test was made? 

A. Such a test had already been made. There was a controversy 
on that side. 

Q. What was the controversy? 

A. Owen was my superior. I never had any trouble with my su- 
perior — until now I am ready to resign. 

Q. I do not understand yet how you were prevented from making 
this test. 

A. The Big Elm Company stopped us in this way. They had five 
hundred producers, just as the City Dairy Company, the rottenest com- 
pany that sold milk to Rochester. They were filthy beyond measure — 
the Brighton Place Dairy Company taking milk from vast numbers of 
tuberculous cattle. We wanted to go in and test the herds, instead of 
making tests from finished producers of one of these big companies who 
massed the milk, and produce the burden of proof on the large companies. 

Q. You had no authority to do that ? 

A. No, sir. 

Q. You had authority to test the herds? 

A. We did of all the small dealers, testing them first, realizing that 
just as soon as we got up against the big companies we would run against 
a stone wall, as we did. 

Q. What was there to prevent your testing the herds of the Big 
Elm Company? 

A. Simply because we were at the end of our rope. At this time 
we had two and a half milk inspectors to do this work. We could not 
in the nature of things. We had to plan our work so that when we had 



170 MILK SURVEY OF THE CITY OF ROCHESTER 

a let down at one time, we could do a little more work of one kind than 
another, and to test, as I said in my letter, it would then have taken us 
a year to do that sort of work, and we could not begin until after the 
summer season was over, because the glass factories were shut down, 
and we had worn out our centrifugal machines in getting out these 
samples of milk. 

O. That is the last that has been done in regard to the tubercular 
test ? 

A. Yes, sir. 

O. There is not any reason why you should not have gone out the 
next year, when you got your machinery ? 

A. No, sir, there was not. 

Q. And so since 1910 there has not been any test made to indicate 
whether or not tubercular milk was being furnished to the people of the 
City of Rochester? 

A. No, sir. 

Q. Do you believe it is being furnished? 

A. I am sure of it. 

Q. What is the reason that your Department does not go on with it ? 

A. I have not the help. 

Q. How much help should you have to do it then, what help to go 
on with this work? 

A. We should have at the present time two or three additional 
milk inspectors. We are not able to do it with the milk inspectors now 
as it should be done ; an additional chemist, because the work is alto- 
gether too much for one chemist ; and one bacteriologist. We have had 
work pile up in a very considerable way, and work that was quite as im- 
portant as this, and this is only a sample of the kind of piece work we 
attempted to do to see whether the people of Rochester were interested. 
But they were not interested ; and the Milk Commission was not inter- 
ested. The Milk Commission was not interested in getting ordinary milk 
tested to see whether the ordinary babies would have milk from tuber- 
culin tested cows. They were only interested in testing certified milk. 

Q. With two or three inspectors and an additional chemist you 
could go ahead testing all the cows from which milk comes ? 

A. Very well, yes, sir, and put the burden of proof on the big com- 
panies to show that the herds from which they get milk are free from 
tuberculins. From five to seven per cent, of all tuberculosis was — I don't 
know what the figures are now — due to bovine tuberculosis. 

Q. Is the guinea pig test still in vogue ? 

A. I don't know. 

Q. Did you lose all interest in the matter? 

A. I did lose all interest. I have lost absolutely all interest in the 



MILK SURVEY OF THE CITY OF ROCHESTER 171 

whole milk question, save for doing this kind of work, because the people 
of Rochester have not been interested in the kind of milk which they fed 
to their children and fed to themselves — any more than the interest in 
the kind of water they get. 

O. You don't want to testify that your interest in providing a 
wholesome milk supply for the City of Rochester depends upon whether 
or not they know the danger they run? 

A. No. 

O. What I would like to know, and what the Council would like 
to know, is why you have not proceeded to obtain this extra help that is 
needed to go ahead and test these cattle? 

A. I have asked for the help, but I have n't had it. 

Q. Can you tell us when you asked for this extra help? Is it a 
matter of record? 

A. It is. 

Q. When was it? 

A. Several times. 

Q. You will look it up and furnish it to us ? 

A. Be glad to. 

Q. Now, milk is dipped in the City of Rochester to some extent? 

A. Yes. 

Q. That means taking the can that the producer delivered it in 
around and dipping out of it into the consumer's pail? 

A. Yes. In response to that question of course it means grocer's 
dipped milk. 

Q. That is, grocers have it in cans and dip it out? 

A. In the outskirts, yes. 

O. Sometimes the original package in which it was poured from 
the milk pail? 

A. I don't know about that. 

Q. What is the objection to that? 

A. The objection to that is that milk may be put into dirty con- 
tainers; that is, the milk may be contaminated by the surroundings in 
which the milk is kept. There are some dangers of that kind to which 
milk in grocery stores may be exposed. 

Q. There is no ordinance or statute prohibiting that in the City of 
Rochester ? 

A. No, sir. 

Q. Do you think there should be ? 

A. I do. When considering that point, I have advocated for some 
time that wherever milk was sold, it should be in the original package. 
That is, if Jones wanted to buy milk from a large milk dealer, he should 



172 MILK SURVEY OF THE CITY OF ROCHESTER 

buy and sell in original packages. The answer to that was that these 
people could buy dipped milk that was good for food for adults and not 
dangerous- — you can buy cheaper than when sold in original packages. 

Q. Now, Doctor, there have been occasions when your attention 
has been forcibly called to the contraction of typhoid fever from milk in 
the city? 

A. Yes, sir. 

Q. What were some of those occasions, tell us about them? 

A. Let us read it from the record. As far as I know there has been 
no typhoid in Rochester traceable to milk in a number of years. 

Q. How many? 

A. Well, one's memory — I hesitate about that question in giving you 
a number; more than five I would say. How many more than five I 
can't tell you. 

Q. On the subject of sanitation and the delivery to the people of 
wholesale milk, what do you say ought to be done in the City of Rochester 
that is not — to secure people a supply of wholesome milk at the lowest 
possible cost? 

A. In the first place, we will have to have some department inspec- 
tion and laboratory service. That is the first thing. 

O. Tell us what they would do. 

A. Simply supplement the work of the inspectorial stafif that is 
being done. We are not able under present conditions to make the num- 
ber or kind of inspections with sufficient frequency that a reasonably 
safe milk supply requires. 

Q. How often do you think the dealers' supply ought to be in- 
spected ? 

A. That depends upon the dealers. Some of the dealers would need 
very little inspection, some of them ought to be inspected every month; 
some ought not to be in business at all. 

Q. Why are they in business? 

A. Because there is no legal way of putting them out of business, 
and no sufficient force of inspectors to determine which ought not to be 
in the business. 

Q. What we need then is a sufficient force so as to find which of 
tliese dealers ought not to be in the business ; then we need some new ma- 
chinery whereby we can put them out of business ? 

A. It is rather an extension of the present machinery. As far as I 
am concerned, I have no fault to find with the present machinery. The 
present machinery is doing all that it possibly can do. It cannot stand 
very much more stress. 

Q. Added inspection and laboratory equipment and help? 



MILK SURVEY OF THE CITY OF ROCHESTER 173 

A. Yes, sir. 

Q. And what else? 

A. I think that covers it. 

Q. What have you to suggest, Doctor, in regard to the price of 
milk? How can we get cheaper milk? 

A. We can get cheaper milk by simplifying delivery. 

O. In what respect? 

A. Simply by zones. I don't mean absolutely by zoning, but by 
dividing the town up into districts, so a man does not have to cross and 
re-cross — one man does not have to re-cross another man's district. The 
letter carrier, Mr. Van Duser of the letter carriers' organization, struck 
the note last night. And a good many years ago there appeared in one 
of the Fabian publications in England, the statement of a man who was 
looking out of the window and said he saw 14 grocery wagons, seven 
or eight butcher wagons, and Lord knows how many other wagons — 
and one postman. 

O. Do you advocate some system of compelling the dealers? 

A. I do not know. I would not compel them. 

Q. How would you get at it ? 

A. I don't know. I think we need information ; I want to know. 

Q. Doctor, going back to the question of the tubercular test, assum- 
ing that this appeal has been made, and this order was made by Commis- 
sioner Owen at the time, what was there other than shortage of help in 
your department, to prevent these tests from going on? 

A. I have gone over that already, Mr. Bechtold, and told Mr. Pierce, 
and told the Committee in answer to Mr. Pierce's questions, that there 
was not anything to interfere except shortage of help. It was impossible 
to get help, and because of the work and our material being worn out, 
and it would take us a year to go on with the work. 

Q. Why did you make the statement or say that the large companies 
prevented you from continuing this? 

A. They did. 

O. Your reply is inconsistent, Doctor. It seems to me this shortage 
of help — the companies did not have anything to do with that? 

A. They did not have anything to do with that, but when they ob- 
jected to that order, and made me go to New York by way of San 
Francisco and China, that is the way they interfere with our doing the 
work. 

Q. Have you reference to this one appeal ? 

A. This one appeal, because we did nothing after the appeal. 

Q. Don't you think that that was fair? To cut off a contaminated 
source of supply for any company — don't you think that is fair? 



174 MILK SURVEY OF THE CITY OF ROCHESTER 

A. Yes — to cut off one and let the other very large number remain. 

Q. Do you have any figures as to the portion of re-actors in the 
territory furnishing milk to Rochester? 

A. The figures I gave you a little while ago. 

O. How much? 

A. Somewhere between fifteen and twenty per cent. 

Q. One herd went fifty per cent. ? 

A. One herd was fifty per cent, tuberculous. 

Q. An average of twenty per cent.? 

A. I don't know what the average would be now. Perhaps less, 
because farmers are taking better care of their cattle ; they are doing 
more things ; they are trying to eliminate the cow that is no longer good 
for much, that is not paying her board. And I think by that same token 
there are fewer tuberculous cattle in herds. 

Q. You would be in favor of the city taking over the milk business ? 

A. I am — taking over the distributing end. 

Q. Not the producing end? 

A. No. 

Q. Your opinion would be based upon what was disclosed as a 
result of a study of this kind, assuming that the study goes into the ques- 
tion of the distribution of milk? 

A. Yes. 

O. You mean by that, that if the study of this situation disclosed 
that it was advisable to the city to go into the business, you would be in 
favor of it? 

A. Yes. 

Q. And if it did not, you would not? 

A. No. 

O. What do you think about the milk supply of the City of Roch- 
ester? What is your belief? 

A. My belief, based on some considerable observation both in the 
past and at the present time, and upon reports from the nurses working 
in our welfare stations, and who have been familiar with the work in the 
welfare stations and in the densely populated districts, is that our chil- 
dren are not getting milk as they once were getting milk; not as they 
ought to get it. Now, what else they are lacking which they might get, 
nobody knows. As I said this morning, we are going to have examples 
of pot-bellied children, with skeleton legs and arms. Unless we can get 
better nutrition for our little children, we are certainly going to have a 
race deterioration of some kind in some degree in the very near future; 
and reasoning from biological grounds, the young, when it has been once 
deprived of its nutrition in early life, does not readily regain that which 
it has once lost. 



MILK SURVEY OF THE CITY OF ROCHESTER 175 

TESTIMONY OF MR. F. E. GANNETT 
Mr. F. E. Gannett, who appeared as a witness at a public hearing, 
held at the City Hall, Rochester, N. Y., on July 23, 1919, gave the follow- 
ing statement : 

Q. You have been in the newspaper business for some time, I 
believe ? 

A. Yes, about twenty years. 

Q. During the past year, you paid special attention to the subject 
of milk in the City of Rochester and its production outside, etc.? 

A. Yes. 

Q. Will you tell us in your own way what you have done about that 
and what you have ascertained and what your conclusions are that you 
found out? 

A. Well, my attention was first called to the milk situation in Roch- 
ester a year ago when I looked over the report of the Health Bureau of 
the city. That report was so astounding to me that I began to look into 
the question. The report for July, 19,18, for instance, showed that there 
were ten dealers selling milk here with a bacteria count of over five mil- 
lion; there were eighteen selling milk with over three million counts. 
There were forty-one with over a million counts. Of this whole number 
only nineteen were pasteurized. 

I had had the impression from living out of the city that Rochester 
milk supply was about the best in the country and I was quite amazed to 
find that they were not only not protected against impure milk, but that 
most of the milk had a very high bacteria count from those figures ap- 
parently. 

SANITARY CONDITION OF ROCHESTER MILK SUPPLY 
Dairy Farm Sanitation 

The dairy farm inspectors who were employed by the Survey to visit 
dairy farms, did so with two purposes in view. In the first place they 
made studies of the cost of milk production ; and in addition to this they 
made inspections of the dairy on each farm to determine the sanitary 
conditions. For the purpose of the sanitary inspection they used a printed 
report blank which was especially prepared for this work, and noted 
thereon a statement of the condition of the buildings and equipment and 
the manner in which all of the dairy operations were performed. One 
hundred and forty-one dairy farms located in each of the important dis- 
tricts from which Rochester milk is furnished, were inspected in this 
way, and report blanks from each farm returned to the offi,ce of the Sur- 
vey. From these blanks a summary was prepared, which shows the 
results of these sanitary inspections, as indicated in Table No. 87. 



176 



MILK SURVEY OF THE CITY OF ROCHESTER 



TABLE NO. 87 

PUBLIC SAFETY COMMITTEE OF THE COMMON COUNCIL OF 
ROCHESTER, N. Y. 

MILK SURVEY 
Charles E. North, M. D., Director of Survey. 

REPORT OF DAIRY FARM SANITATION 
Total number of farms inspected 141 



Cows : 

Physical examination of cows by veterinarian 

Tuberculin tested by veterinarian 

Employees : 

Diseased 

Cow Feed : 

Distillery waste used 

Any unwholesome food 

Cow Stable: 

Construction 

Sanitation 

Cow Yard : 

Condition 

Water Supply: 

Safe 

Privies : 

Safe 

Milk House: 

Construction 

Sanitation 

Milking : 

Udders clean 

Hands clean 

Milk Pails : 

Small tops 

Pail racks 

Sanitation 

Milk Cans and Lids : 

Inverted on can racks 

Sanitation 

Washing Pails and Cans: 

Performed at once 

Brushes used 

Alkali powder used 

Is washing done mornings only 

Strainers : 

Are strainers used 

Are tin holders used 

Condition 

Strainer cloth (using one only) 

Strainer cloth (using two or more) 

Condition 

Strainer cloths washed A. M 

Strainer cloths washed P. M 

Stirring Rods : 

Stirring rod of wood 

Stirring rod of metal 

Sanitary 



Yes. 

134 

20 


No. 

4 

105 

141 


Good. 


Bad. 


31 

1 


110 

140 




•• 






138 
137 


3 

4 


.. 




127 


10 


138 


2 




• • 


132 


4 


140 
140 





114 
121 

131 
135 



129 



10 



128 


12 


102 


36 


116 


20 


5 


134 


99 


31 


127 


7 


"6 




130 




136 


• * 


131 




7 




49 




56 


. . 



139 



134 



129 



129 



MILK SURVEY OF THE CITY OF ROCHESTER 



177 



Sterilizing : 

Steam supply 4 

Hot water supply 87 

Hot water from kitchen stove 132 

Stove and boiler at milk house 2 

Strainer cloths boiled A. M 122 

Strainer cloths boiled P. M 113 

Cooling : 

Ice supply 52 

Sufficient for entire season 47 

Open cooler 64 

Cooling tank 127 

Cans submerged up to neck 125 

Is dairy equipped with scrubbing brushes 97 

Alkali washing powder 106 



79 
8 

20 
1 

27 
18 





Temperature ( 
Tank Water 


DF 


Temperature of 
AIiLK A. M. 




Temperature of 
Milk P. M. 


40-^14° F. 




No. 
22 
19 

n 

14 

22 

8 


40_^t4°F. . . . 


> 


lo. 

4 

3 

50 

31 

20 

7 


No. 
40— 44°F 5 


45_49°F. 


45_49°F. . . . 




45 49°F... . 26 


50—54° F. 




50—54° F. . . . 




SO— :54°F 49 


55_59°F. 




55— 59°F. . . . 
60— 64°F. . . . 




55—59° F 20 


60— 64°F. 




60— 64°F . 26 


65_70°F. 




65—70° F.... 




65— 70°F 2 
















Hours 


OF Milking 


Milk Delivered for Shipment 


A.M. 
4:30 


No. 

3 

. 57 

. 44 

. 30 

; 3 


P.M. 
2:00. 
4:00. 
4:30. 
5:00. 
5:30. 
6:00. 
6:30. 
7:00. 


No. 
3 


A.M. 

6:30. 

7:00. 

7:30. 

8:00. 

8:30. 

9:00. 

9:30. 
10:00. 
11:00. 




No. P. M. No. 
3 6:00 1 


5:00 


15 




28 6:30 1 


5:30 


9 




32 7:00 3 


6:00 


42 




30 7:30 


6:30 


29 


7 8:00 1 


7:00 


27 


9 8:30 




7 




3 9:00 




2 




5 








1 



From Table No. 87 it is evident that the dairy cows were in ap- 
parently healthy condition, being periodically examined physically by a 
veterinarian in accordance with the State law. On only 20 farms out of 
the 141 were the cows tested for tuberculosis. This test was voluntary, 
as there is no State or City regulation requiring same. 

All farms reported employees free from disease. It is noteworthy 
that on 31 farms distillery waste was used for feeding cows. It is neces- 
sary to use this with extreme care and most cities now prohibit the use 
of such cow feed. 

Regarding the sanitary condition of the buildings and equipment, 
there was very little fault that could be found. The external appearance 
of these farms was uniformly good. This is due chiefly to the activity 
of the Health Bureau of the City of Rochester which has made a special 



178 MILK SURVEY OF THE CITY OF ROCHESTER 

effort in the inspection of dairy farms and as a result of these inspections 
brought the majority of farms to a condition where they would give a 
good sanitary score. 

Under the heading of "Sterilizing," it is noteworthy that only four 
farms are supplied with steam boilers and that only two farms have a 
stove and hot water boiler in the milk house. One hundred and thirty- 
two farms report their source of hot water supply as the "Kitchen Stove." 
Unless the kitchen stove in a farm house has special arrangements for^ 
furnishing hot water in excess of ordinary household needs, (such as a 
wash boiler or large kettle) it commonly happens that there is not suffi- 
cient hot water at all times to properly sterilize milk cans and milking 
pails. The sterilization of milk cans and milk pails is the most vital of 
the sanitary operations in the entire list and unsanitary milk is commonly 
due to neglect of such sterilization. 

COOLING 

Under the head of "Cooling" it is noteworthy that only 52 out of 
141 farms were supplied with ice. The number is undoubtedly much 
smaller this year than in other years, due to the unusual shortage of ice 
last winter. In a climate such as the Rochester climate, where a large 
crop of ice can easily be obtained each year, there is no reason why every 
dairy farmer should not have an ice supply sufficient to cool his milk 
with ice during hot weather. 

The cooling of the milk as performed on these dairy farms is carried 
out chiefly by the use of well water pumped into tanks in which the milk 
cans were placed. The report shows that on 81 of the farms the tempera- 
ture of the tank water was from 50 to 70 degrees. These temperatures 
are too high to permit sufficient cooling of the milk or prevent the growth' 
of bacteria. The temperature of the morning's milk was taken on 108 
of these farms and ranged as shown in the tabulation, from 50 to 70 
degrees, and the temperature of night's milk on 87 farms had the same 
range. On the greater number of these dairies, both morning's an,d 
night's milk ranged between 50 and 60 degrees. 

This is as cool as it was possible to make the milk with such water 
as was available for cooling purposes. 

The hours of milking both morning and night were determined on 
most of the dairy farms, and hours at which milk v/as delivered to rail- 
way stations and trucks for shipment. The inquiries show that on 93 
farms out of the 141, the milk was delivered in the morning for shipment 
by 8:00 A. M. 

In general, the sanitary condition of the dairy farrns compares favor- 
ably with the sanitary condition of dairy farms supplying milk to other 
cities. 



,vIILK SURVEY OF THE CITY OF ROCHESTER 179- 

SANITARY CONDITIONS OF DEALERS' MILK PLANTS IN 
CITY OF ROCHESTER 

Four city milk inspectors were employed in the work of making 
sanitary inspections of the milk factories in the City of Rochester. They 
used a standard form of report blank, on which were noted the conditions 
of plants and their equipment, the methods used in the performance of 
all operations, milk handling, the temperatures of pasteurization and of 
cooling milk, and the efficiency of the processes of washing and steril- 
izing. In addition to this, other minor features of the conduct of the 
business were noted. One hundred and thirty-two milk delivery stations 
in the city were inspected in this manner, out of a total number of 136. 
Detailed reports of these inspections were delivered to the office of the 
Survey and by the statisticians summarized in the form of a tabulation 
as indicated in Table No. 88. 

TABLE NO. 88 

REPORT ON MILK PLANTS— SANITARY OPERATIONS 
EQUIPMENT 

Yes. No. 

1. Building — Located among sanitary surroundings 116 16 

2. Floors — Constructed of water-tight materiaL 128 2 

2a. Floor properly graded and drained 120 4 

3. Walls and Ceilings — Constructed of hard material Ill 17 

3a. Smooth 105 16 

3b. In good repair Ill 14 

4. Drainage — Sufficient floor drains 128 2 

4a. Disposal satisfactory 123 5 

4b. Plumbing in good repair 122 5 

5. Light — Sufficient (at least 8% floor area) 116 11 

6. Ventilation — Sufficient 121 6 

7. Milk Handling Rooms — Separate from stables, etc 125 4 

8. Refrigerator — Properly constructed 106 7 

9. Water Supply — Adequate ._ 125 4 

9a. Tap or hose bibb connection ." 115 20 

9b. Running hot water convenient 107 21 

10. Lockers — Provided for employees 105 23 

10a. Conveniently located 105 9 

10b. Suitable and adequate 104 12 

11. Water Closets — Provided 115 12 

12. Water Closets — Properly enclosed and ventilated 120 2 

12a. In good repair 120 

12b. Doors self-closing 5 3 

13. Waste Receptacles — Suitable if required 44 8 

14. Screens — In windows and other openings 44 69 

15. Dressing Room — Conveniently located 115 13 

15a. Hot running water 113 8 

15b. Soap 114 9 

I5c. Common towel prohibited 26 14 

16. Milk Handlers — Clothing of white wash material 34 94 

16a. Apparently in good health 123 4 

17. Stable for Horses — Sanitary 105 8 

18. Milk Wagons — Suitable if required. 119 3 

19. Bottle Filler — Suitable 80 3 



180 MILK SURVEY OF THE CITY OF ROCHESTER 

19a. Machinery 97 

Or, by hand " 30 

20. Bottle Capper — Suitable 39 3 

20a. Machinery 9 

Or, by hand 112 

21. Pumps and Pipes — Sanitary construction 83 6 

22. Pasteurizer — Sanitary construction 23 4 

23. Cooling Device — Sanitary construction 80 3 

24. Vats — Sanitary construction 112 4 

OPERATION 

Yes. No. 

1 . Milk Receiving — Separate 2 32 

a. Receiving tank sanitary and clean 95 18 

b. Milk filter clean and sanitary 114 9 

c. Milk protected , 112 5 

d. Inspected for taint, temperature, sourness 109 7 

2. Bottle Washing — Bottles brushed 120 1 

a. Hot alkaline wash water 126 1 

b. Rinsed with clean water 124 3 

c. Sterilized 74 .53 

d. Apparatus used 82 32 

e. Bottles inverted or protected 119 7 

f. Stored in sanitary place 115 7 

g. Bottle racks washed 94 29 

3. Can Washing — Cans brushed 128 

a. Hot alkaline wash water 131 

b. Rinsed with clean water 129 2 

c. Apparatus used 27 90 

d. Sterilized _._ 101 25 

e. Lids cleaned and sterilized same as cans 99 40 

f. Proper can racks provided 123 7 

g. Cans free from rust and seams 129 2 

h. Shipment cans cleaned before return 131 1 

4. Apparatus Washing — Including 

a. Pipes, pumps, pasteurizer, cooler 25 3 

b. Taken apart daily 114 6 

c. Apparatus used 53 17 

d. Brushed with hot alkaline water 124 

e. Rinsed with clean water 124 

f. Sterilized 79 44 

g. Steam hose connection 74 44 

4h. Boiler Pressure 

Lbs. No. ' Lbs. No. Lbs. No. 

10 1 70 

15 3 75 



20 1 80 

30 1 90 

40 11 100 

50 7 110 

55 1 120 

60 26 130 



5 


140 


1 


150 


9 


160 




165 





170 




180 


2 


190 




200 



45 1 

4i. Apparatus protected after sterilizing 112 



MILK SURVEY OF THE CITY OF ROCHESTER 



181 



Pasteurizing 








1. Milk heated to : 




2. Milk held at: 




Temp'ture. 

140.: 

142 

144 


No. 
. 4 
. 10 
. 4 
. 4 


Temp'ture. 

140 

142 

144 


No. 
.. 5 
.. 11 
.. 4 


145 


145 


.. 2 



3. Milk cooled to : 
Temp'ture. No. 



All but one held 30 minutes. 
One held at 20 minutes only. 



34. 
35. 
36. 
38. 
40. 
42. 
45. 
47. 



50. 



Yes. 

Temperature control 17 

Temperature recorder 22 

Steam — Hot water heater 19 

Mixing in holder 18 

Exposed during process , 5 

Steam supply adequate 22 

Ice supply or refrigeration adequate 21 

Pasteurizer — Capacity 



No. 

5 



2 
17 



Cooling 
a. Raw milk cooled to : 



Temp'ture. 
34 



35. 
36. 
38. 
40. 
42. 
43. 
45. 
46. 
48. 
50. 



No. 

2 

3 

1 

10 
46 

6 

2 
18 

3 

3 

5 



b. Raw milk held at : 
Temp'ture. 
32 



34. 
35. 
38. 
40. 
41. 
42. 
43. 
45. 
46. 
48. 
50. 



No. 

1 

1 

5 
14 

n 
1 

10 

1 

13 
2 
1 

5 



c. Cooler protected . . . . 

d. In sanitary place . . . . 

e. Storage cooling vats- 

f . Ice water clean 



-concrete 



Yes. 

115 

112 

103 

95 



Bottling and Capping : Yes. 

b. Bottling by automatic device 113 

c. Hands not allowed to touch bottles 53 

d. Bottle tank covered 114 

e. Caps clean and protected 113 



8. Can Filling — Filled in clean manner. 

a. Lids protected 

b. Paper, if used, clean 



20 
11 



9. Wagons — Retail, clean 114 

a. Wholesale — clean 61 

b. Railroad platform — clean 52 

10. Stable — clean 101 



Lbs. 



28,381 



No. 

8 

9 

3 

18 

No. 

10 

72 

6 

4 

1 
6 
1 

5 
i 

9 



182 



MILK SURVEY OF THE CITY OF ROCHESTER 



MAINTENANCE OF PLANT 

Yes. No. 

1. Floors— Clean 110 11 

2. Washed daily 95 26 

3. Walls and Ceilings — Clean 90 31 

4. Properly painted 75 25 

5. Windows — Clean 71 47 

6. Rubbish — Not allowed to accumulate 43 76 

7. Spitting and smoking prohibited 101 18 

8. Waste Cans — Clean 66 9 

9. Water Closets — Clean 71 5 

10. Milk Handlers' Clothing — Clean ^1 23 

11. Street Clothing — Not in milk rooms 35 85 



GENERAL 
a. Milk tested as to temperature on arrival . . . 



b. 



Degree 
45 


No. 
3 


50 


S 


53 


1 


55 


1 


56 


1 



Average Temperature. 



Degree 
58 


No. 
? 


62 


1 


64 


7 


65 


1 


66.. 


? 


67 


.. ?. 



c. Milk tested for fats and solids 



Degree No. 

68 5 

69 1 

70 4 

72 1 

75 2 



Yes. 
17 



Yes. 
11 



No. 
41 



No. 
23 



Per Cent. Butter Fat. 
Number Per cent. 

2 3.6 

1 3.4 



' Per Cent. T. S. 

1 12 

e. Milk examined for bacteria count (by Health Bureau) 



70 



41 



Colonies Per cc. 



No. 
2... 
1... 
1... 
1... 



Count 
10,000 
12,000 
17,000 
20,000 



No. 
2... 
1... 
1... 
1... 
2... 



Count 
30,000 
40,000 
44,000 
53,500 
70,000 



No. 
1... 
2... 
1... 
1... 



Count 

80,000 

114,000 

250,000 

400,000 



g. Are caps and tags marked to show place and date of pasteuriza- 
tion, bottling or production ? 

h. Has there been any infectious disease in household of milk 

handlers ? 

i. Do you refuse milk suspected to be adulterated, dirty or infected? 



Yes. 



22 



69 



No. 

52 

47 
1 



MILK SURVEY OF THE CITY OF ROCHESTER 183 

EMPTY CONTAINERS RETURNED FROM ROUTES 

a. Per Cent, of Bottles Returned Dirty. 

Per cent. No. Per cent. No. Per cent. No. 

lA 1 4 2 20.. 5 

V2 1 5 7 25 ..5 

\Vi 2 8 2 40 2 

1 9 10 20 SO 5 

2 15 12 2 60 1 

3 2 13 1 80 2 

15 3 

b. Per Cent, of Cans Returned Dirty. 
Per Cent. No. 

100 9 

30 1 

5 

c. What Steps are Taken to Insure Cleansing Before Return by Customer? 

Instructed to rinse bottles 5 

Homes visited — Drivers held responsible 1 

Nothing 38 

d. What Do You Do in Regard to Empty Receptacles from Infected Homes? 

Never had any 1 

Nothing 1 

Refuse 8 

Do not remove them 18 

"From the summary of these reports it Avill be seen that in most in- 
stances the building and equipment of the city milk plants are in good 
condition. Among the exceptions worthy of notice are the following: 

(1.) In only 26 factories is a common towel prohibited. The use of paper 

towels is to be recommended where the cost of cloth hand towels is too 

expensive. 
(2.) In only 34 of the 132 factories visited were the employees dressed in 

white, washable overalls. 
(3.) Only 44 of the factories were provided with screens in the windows 

against flies. 
(4.) In only two factories was milk received in a separate room from the 

other operations. 
(5.) In 53 of the plants visited the glass bottles are not sterilized. 
(6.) In 25 of the plants the milk cans are not sterilized, and in 40 of th.em the 

lids of the cans are not sterilized. 
(7.) In 44 of the factories the apparatus used is not sterilized. 

THE PASTEURIZATION OF MILK 
Four factories were heating the milk not above 140 degrees. This is 

lower than the temperature decided upon by the highest authorities as 

necessary for the destruction of bacteria under commercial conditions. 
In five factories the milk pasteurized by the Holding method was not 

heated above 140 degrees, which is a temperature too low for effective 

results. 

All of the factories are using the Holding method of pasteurization. 

All but one held the milk for 30 minutes at the highest temperature. 



184 MILK SURVEY OF THE CITY OF ROCHESTER 

which time is recognized as necessary for effective results. One factory 
held the milk at the highest temperature for only 20 minutes, which is 
too short a time. 

In the cooling of milk the report shows that in the pasteurizing 
plants, 9 were cooling to 40 degrees and below, while 13 were cooling to 
temperatures between 40 and 50 degrees. It is recognized for efficient 
pasteurization and the protection of the milk after pasteurization, that 
it should be cooled as the last step in the process, to temperatures below 
40 degrees. Five of the pasteurizing plants were not provided with tem- 
perature controllers. All of them were prbvided with temperature 
recorders. 

In milk plants handling raw milk, temperatures to which milk was 
cooled were also taken. The report shows that in 62 of these the milk 
was cooled to 40 degrees or below, which is satisfactory, while in 37 the 
milk was cooled to temperatures of from 40 to 50 degrees. In 98 fac- 
tories raw milk was handled in cold storage rooms at temperatures below 
40 degrees, while in 33 factories the raw milk received was held in cold 
storage in temperatures of between 40 and 50 degrees. 

One hundred and thirteen factories used machinery for filling bottles. 

In 53 factories the machinery is arranged so that the hands do not 
touch the bottles during bottlings. 

Temperatures taken of milk during August and September on its 
arrival in the city by inspectors, were taken from cans on the railroad 
platforms. Thirty-nine samples in all were tested. Of these, 

7 were 70 degrees and above. 

11 " 65 to 69 degrees. 

12 " 55 to 64 
> 6 " 50 to 55 

3 " 45 to 50 " 

In the majority of these samples the temperatures were too high 
and would stimulate the growth of bacteria. 

Some of the bacterial tests were made by the Health Department 
during the month that inspections were recorded. 

With the exception of a few of the smaller plants where unsanitary 
conditions were found, the sanitary inspectors' reports indicate a fairly 
good condition of the city milk factories. Lack of sterilization and lack 
of proper cooling, which are always the two main faults in milk sanita- 
tion, are the most prominent faults to be found with the sanitation of 
these plants. 

BACTERIAL TESTS OF ROCHESTER MILK SUPPLY 

The sanitary character of the milk itself must always be considered 
independently of the sanitary condition of the farms and factories. To 



MILK SURVEY OF THE CITY OF ROCHESTER 185 

determine the sanitary character of the milk, arrangements were made for 
carrying out some special bacterial tests. The University of Rochester, 
through its Department of Vital Economics, kindly offered the facilities 
of one of its bacteriological laboratories to the bacteriologists employed 
by the Survey. These laboratories were oflfered without expense to the 
Survey and every convenience that could be desired was provided. The 
Survey employed two bacteriologists at different times to collect samples 
of milk and make bacterial tests. 

The total number of samples tested was 350. A number of milk 
factories were visited and samples taken of the process of pasteurization 
in order to determine the efficiency of this process. In such factories 
samples were taken from the mixing tank in which the milk from the 
cans was poured and mixed before pasteurization. If passed through 
a clarifier before pasteurizing, sarnples were taken from the clarifier and 
from each pasteurizer. They were then taken from the heater after the 
milk was heated and from the holder after the milk was held at the re- 
quired temperature for the required period of time. Another set of 
samples were then taken from the cooler after cooling and from the 
bottle filler after the milk had passed through the filler, but before it 
entered the bottle. The last set of samples were taken from the filled 
bottles themselves. Another series of samples were taken from the rail- 
road platforms from the farmers' cans as they were received. 

The results of all this work are tabulated and summarized in Table 
No. 89. 

TABLE No. 89 
SUMMARY OF TABULATION OF BACTERIOLOGICAL TESTS. 

2. (Cans.) Raw Milk as Received: 

Bacteria per cc. No. of Samples 

Below 50,000 18 

50,000 to 100,000 Z1 

100,000 to 200,000 60 

200,000 to 500,000 47 

500,000 to 1,000,000 22 

1,000,000 to 5,000,000 18 

3. Samples from Mixing Tank : 

Bacteria per cc. No. of Samples 

100,000 to 200,000 3 

200,000 to 500,000 8 

500,000 to 1,000,000 6 

1,000,000 to 5,000,000 17 

4. Samples from Clarifiers : 

Bacteria per cc. No. of Samples 

185,000 1 

190,000 1 



186 MILK SURVEY OF THE CITY OF ROCHESTER 

5. Samples from Heater : 

Bacteria per cc. No. of Samples 

1,000 to 10,000 1 

10,000 to 25,000 3 

25,000 to 50.000 4 

50,000 to 100,000 4 

100,000 to 200,000 .................... 

200,000 to 500,000 2 

6. Samples from Holder: 

Bacteria per cc. No. of Samples 

1,000 to 10,000 4 

10,000 to 25,000 

25,000 to 50,000 8 

50,000 to 100,000 .■ 2 

100,000 to 200,000 ' 2 

7. Samples from Cooler : 

Bacteria per cc. No. of Samples 

1,000 to 10,000 3 

10,000 to 25,000 9 

25,000 to 50,000 4 

50,000 to 100,000 4 

100,000 to 200,000 2 

8. Samples from Bottle Filler: 

Bacteria per cc. No. of Samples 

1,000 to 10,000 1 

10,000 to 25,000 3 

25,000 to 50,000 4 

50,000 to 100,000 

100,000 to 200,000 2 

500,000 to 1,000,000 

1,000,000 to 5,000,000 1 

9. From Filled Bottles : 

Bacteria per cc. No. of Samples 

1,000 to 10,000 4 

10,000 to 25,000 5 

25,000 to 50,000 11 

50,000 to 100,000 11 

100,000 to 200,000 6 

200,000 to 500,000 3 

500,000 to 1,000,000 4 

1,000,000 to 5,000,000 2 

From Table No. 89 it appears that out of 202 samples taken directly 
from farmers' cans, 18 contained milk testing from one million to five 
million bacteria; 22 from five hundred thousand to a million, and 47 
from two to five hundred thousand. When one considers the nearby 
source of supply for the City of Rochester, it is not unreasonable to ex- 
pect milk to arrive in the city containing not more than two hundred 
thousand bacteria, if sanitary precautions have been carried out. Con- 
sequently, at least 87 of the samples of milk out of the 202 contained 
numbers of bacteria so large that they plainly indicated lack of proper 
sanitary precautions. 



MILK SURVEY OF THE CITY OF ROCHESTER 187 

This is further indicated by the samples taken from the mixing tanks 
of the pasteurizing plants. Thirty-four of these were taken and 31 con- 
tained bacteria in excess of two hundred thousand, while 17 contained 
bacteria from one to five million — indicating very unsanitary milk. The 
samples taken from the heaters of the pasteurizers were 14 in number. 
Two of these contained bacteria of between two and five hundred thou- 
sand, and four bacteria from fifty to one hundred thousand. These six 
samples indicated plainly that the processes of heating were ineffective. 
The failure to destroy bacteria in the milk must be reported as due not 
so much to lack of proper temperature on the part of the heating appar- 
atus, for as the temperature seemed to be sufficient, the only remaining 
reason for these large number of bacteria after heating must be imper- 
fect cleansing and sterilization of the apparatus. 

Eighteen samples were taken from the holding tanks. Four of these 
contained bacteria between fifty and two hundred thousand, while eight 
contained bacteria between twenty-five and fifty thousand. These 12 
samples all show plainly that the process of pasteurization was ineffective, 
since a first-class heating and holding process should result in milk which 
contains not more than ten thousand bacteria. Since the temperatures on 
most of these machines seemed to be sufficiently high, the chief reason 
for the large number of bacteria must be due to imperfect processes of 
washing and sterilization of the pasteurizing apparatus. 

The 22 samples taken from the cooling apparatus in the pasteurizing 
plants show the same indications of imperfections in the pasteurizing 
processes. 

Passage of the milk from the cooler does not indicate any marked 
increase in the numbers of bacteria, there being 10 samples containing 
bacteria ranging from twenty-five to two hundred thousand, which corre- 
sponds rather closely with the bacteria in the samples for the holding 
process. 

Samples of milk taken from bottle filling apparatus were 12 in all. 
Two of these contained bacteria between one hundred and two hundred 
thousand, one between two and five hundred thousand, and one between 
one and five million. 

There were 46 samples taken from filled bottles after all processes 
were complete. Six of these contained from one to two hundred thou- 
sand bacteria; three from two hundred to five hundred thousand, and 
four from five hundred thousand to a million, and two from one million 
to five million, making in all 15 samples out of forty-six, or 30% of the 
bottled milk samples in excess of one hundred thousand bacteria. All 
of these were bottles of pasteurized milk and the large numbers of 
bacteria in them plainly indicate unsanitary conditions in the washing 



188 MILK SURVEY OF THE CITY OF ROCHESTER 

and sterilization of the bottles themselves, as well as the apparatus in the 
pasteurizing plants. It is to be expected that a first-class pastuerizing 
process will produce a glass bottle of milk containing no more than ten 
thousand bacteria per cc. There are numerous pasteurizing plants in 
other cities consistently operating in this way, so that the milk sold from 
the delivery wagons contains not more than ten thousand bacteria per cc. 
It must be said that the pasteurizing plants of the City of Rochester are 
not controlled by bacterial tests made either by the dealers themselves or 
by the city Department of Health. The failure to regularly make control 
tests by taking samples of bacteria from these pasteurizing plants, un- 
doubtedly prevents both the dealers and the Health Department from 
having any knowledge as to the efficiency of the pasteurizing processes. 
What has been said regarding the large number of bacteria in the 
pasteurized milk in Rochester can be said with even greater emphasis 
concerning the bacteria in the raw milk of Rochester. While the in- 
spectors did not take samples of bottled milk from the raw milk dealers, 
yet the samples taken from the cans of raw milk at the railroad platform 
plainly indicate what the character of the raw milk in bottles must 
be. Since the methods of handling milk by the raw milk dealers do not 
subtract in any degree from the numbers of bacteria contained in the 
cans received at the railroad; but, as a matter of fact, all of the processes 
of handling by the raw milk dealer necessarily add considerable numbers 
to the bacteria contained in the cans, the numbers of bacteria in the raw 
milk sold in bottles will be just as large and in many cases larger than 
were found in the canned milk as received at the railroad platforms. 

PASTEURIZATION 

Since the year 1900 when Nathan Strauss stood almost alone in 
openly advocating the pasteurization of all milk as a measure of public 
safety, there has been a steady growth of sentiment in favor of pasteuriza- 
tion, so that now the majority of the members of the medical profession 
who formerly opposed this measure have been won over to its favor. In 
like manner, practically every health officer of every large city in the 
United States and Canada, as well as in Europe, openly advocates pas- 
teurization. 

The National Commission on Milk Standards, chosen by the New 
York Milk Committee from the leading public health authorities in the 
United States and Canada, in 1912 at an official meeting passed the fol- 
lowing resolution: 

"The Commission thinks that pasteurization is necessary for all milk at all 
times, excepting certified milk, or its equivalent. The majority of the commis- 
sioners voted in favor of the pasteurization of all milk, including certified. Since 
this vi^as not unanimous, the Commission recommends that the pasteurization of 
certified milk be optional." 



MILK SURVEY OF THE CITY OF ROCHESTER 



189 



As a result of this sentiment, all large milk dealers in the United 
States and Canada have installed machines for pasteurizing milk and 
pasteurize their entire supply, with the exception of a small amount of 
special .milk at high prices, such as certified milk. The only raw milk 
sold in cities and towns outside of the small quantity of certified is the 
raw milk bottled by small milk dealers who cannot afford to install pas- 
teurizing machinery. 

New York City regulations require the pasteurization of all milk 
excepting that produced from dairies having cows which are tuberculin 
tested, employees who are free from disease, and from dairies which 
carry out exceedingly rigid sanitary precautions. 

In Table No. 90 is a list of 18 cities of the U. S. and Canada which 
have passed milk regulations of their own, among which is a regulation 
requiring the pasteurization of all milk not coming from cows tuberculin 
tested, and otherwise protected against infection. It will be noted that 
the total population of these cities is 17,810,000, the total milk supply 
5,503,000 quarts, and the total quantity pasteurized is 5,351,000 quarts, 
which is over 97%. 

TABLE NO. 90 
CITIES HAVING ORDINANCES REQUIRING PASTEURIZATION 



Name of City. 






a 






a 



o a 



u en 



Sacramento, Cal. . 
Minneapolis, Minn. 
Milwaukee, Wis. . . 
Cincinnati, Ohio . . 

Akron, Ohio 

Toronto, Can 

Indianapolis, Ind . 
San Francisco, Cal 
Spokane, Wash. . . 
Seattle, Wash . . . . 

St. Louis, Mo 

Los Angeles, Cal. 
Philadelphia, Pa. . 
Baltimore, Md. . . , 

Detroit, Mich 

Chicago, III 

Cleveland, Ohio . , 
New York, N. Y. , 

Total 



70,000 

400,000 

500,000 

425,000 

190,000 

500,000 

310,000 

500,000 

140,000 

400,000 

750,000 

650,000 

1,800,000 

675,000 

1,000,000 

3,000,000 

1,000,000 

5,500,000 



24,000 qts. 

140,000 " 

192,000 " 

120,000 " 

80,000 " 

192,000 " 

48,000 " 

128,000 " 

28,000 " 

84,000 " 

140,000 " 

197,000 " 

550,000 " 

140,000 " 

340,000 " 

800,000 " 

300,000 " 

2,000,000 " 



22,000 qts. 

126,000 " 

188,000 " 

120,000 " 

76,000 " 

192,000 " 

48,000 " 

120,000 " 

24,000 " 

64,000 " 

104,000 " 

188,000 " 

533,000 " 

136,000 " 

340,000 " 

790,000 " 

300,000 " 

1,980,000 " 



17,81'0,000 5,503,000 qts. 



5,351,000 qts. 1928 1071 



12 

50 

42 

65 

24 

80 

40 

25 

4 

51 

57 

30 

225 

74 

38 

700 

250 

161 



30 
35 
65 
18 
80 
40 
12 
4 
15 
35 
13 
83 
37 
38 
267 
250 
43 



190 



MILK SURVEY OF THE CITY OF ROCHESTER 



In Table No. 91 is a list of twelve cities in the U. S. and Canada 
which have milk regulations not positively requiring pasteurization, but 
recognizing and defining it. This tabulaton shows the populaton, the 
total quantity of milk and the total quantity of milk pasteurized. From 
this it will be seen that in these twelve cities there was 602,000 quarts of 
milk sold daily, 420,373 of which was pasteurized, amounting to 70%. If 
we compare with the above conditions, conditions in the City of Roch- 
ester, we must note that out of a total milk supply in August for 
Rochester of 77,579 quarts there were 44,160 quarts pasteurized, which 
is a little less than 57% of the total supply. 



I 



TABLE NO 91 

CITIES WHERE PASTEURIZATION IS NOT REQUIRED BUT IS 
RECOGNIZED AND DEFINED BY REGULATION 



Name of City. 



P-i 



OS. "75 

a 



OS 



o 



Calgary, Alta. . . . , 
Canton, Ohio .... 

Rockford, 111 

Winnipeg, Can. . . 
New Orleans, La. 

Omaha, Neb 

Hamilton, Ont. . . 
Toledo, Ohio .... 
Columbus, Ohio . 
Washington, D. C 
Duluth, Minn. . . . 



67,000 
85,000 
75,000 
200,000 
400,0001 
240,000 
110,000 
300,000 
300,000 
475,000 
100,000 



16,800 
22.000 
18,600 
57,600 
64,000 
79,000 
30,000 
50.000 
60,000 
160,000 
18,000 



16,320 
16,800 
13,953 
36,200 
28,000 
19,500 
24,000 
30,000 
48,000 
155,000 
13,600 



2 

30 

20 

104 

200 

128 

25 

25 

44 

90 



2 

4 
7 
2 
2 
2 

10 
5 

14 



2,352,000 576,000 



400,373 



The evidence which is available regarding the value of the pasteuriza- 
tion of milk is now so abundant that it would be impossible in a survey 
of this kind to more than hint at the character or value of this evidence. 
Almost without exception every prominent health officer and sanitary 
scientist in the world is now on record in favor of pasteurization of public 
milk supplies, and the practice has become established not only by the in- 
dustry for economic reasons, but under the auspices of municipal health 
departments for public health reasons. 

TESTIMONY OF DR. W. A. EVANS 
One of the most distinguished public health authorities in America 
is Dr. W. A. Evans of Chicago. He holds the position of health editor 
of the Chicago Tribune, and his writings in this paper are syndicated in 



MILK SURVEY OF THE CITY OF ROCHESTER 191 

— — — ^ , 

twenty other large papers in America. He also occupies the position 
of Professor of Hygiene and Sanitary Science in Northwestern Univer- 
sity Medical School. He was Health Commissioner of the City of 
Chicago from 1907 to 1911 inclusive, President of the American Public 
Health Association, 1917, is a member of the Executive Committee of the 
Chicago Welfare Society which operates infant milk depots in Chicago, 
and a member of the Medical Advisory Commission of the Council on 
National Defence. He is one of the most prominent writers and lecturers 
on public health in this country. 

Dr. Evans appeared as a witness at a public hearing held in the 
City Hall, Rochester, October 7th, 1919. His testimony in part was as 
follows : 

Q. During your period of official connection with the Department 
of Health in Chicago as Health Commissioner, was the subject of the 
control over the milk supplies of the City of Chicago a subject which 
came up for consideration? 

A. It was. 

Q. Will you state in your own way what consideration was given 
to the subject at that time, and what you did? 

A. The question of the mortality rate amongst infants was quite 
unsatisfactory, and it was one of the first things to which I gave attention 
when I assumed the duties of the office in 1907. I came to the conclusion 
that the milk supply was the most important factor in the situation and 
I conducted an investigation of the milk supply of Chicago and of other 
cities throughout the country with a view of determining upon a policy 
for the control of the milk supply. As the result of about a year's study, 
we came to the conclusion that the milk supply should be contr6lled by 
tuberculin testing and pasteurization, and so in July, 1908, we passed the 
Chicago ordinances requiring pasteurization, which ordinances have 
served as the basis for most of the milk ordinances passed by municipali- 
ties since that time. 

O. So far as you know, that was the first time that any American 
city passed such an ordinance ? 

A. I have always understood so, and I believe it to be a fact, that 
the ordinance passed in Chicago in 1908 was the first ordinance certainly 
of any large city, or city of importance, requiring pasteurization, making 
pasteurization compulsory. 

Q. What were the reasons why you yourself favored the passage of 
such an ordinance in Chicago? 

A. In the first place, it seemed to me that there was no other way 
to prevent the spread of milk-borne contagion, brought into the city where 
there was considerable distance between the point of production of milk 



192 MILK SURVEY OF THE CITY OF ROCHESTER 

and the point at which it was used. It might be possible to prevent the 
spread of contagion of milk in a community where milk was produced 
on the same premises where it was consumed, or in close proximity 
thereto ; but in market conditions where the producer was out of range 
of the consumer, no other way of preventing the spread of contagion by 
milk was feasible. That was my conclusion of 1908 when the ordinance 
was introduced, and I am more firmly of my opinion now than I was. 

O. Did you have any reason to believe at that time that the milk 
supply was any worse than the milk supply of other cities ? 

A. No, I had rather thought that we had a better average milk 
supply than the milk supply of other cities. Since 1892, the city of 
Chicago has always had milk inspectors and laboratory control of the 
milk supply. In 1904 the city inspection service was supplemented by a 
country, or farm inspection service. Since 1904, Chicago has had for 
the control of its milk supply, an inspection service within the city limits, 
laboratory control, and a country or farm inspection service. All three 
of these services were in operation in 1907 and 1908, the period in which 
I was investigating the question and arrived at the conclusion as to the 
proper remedy. 

Q. Then you did not consider that the control of the milk supply 
by the use of city inspectors and country inspectors and laboratory was 
sufficient -to safeguard the milk supply for Chicago ? 

A. I did not then, and I do not now. I am very emphatic in my 
opinion on that point. 

Q. Had Chicago any time before or since the period you mention, 
suffered from epidemics of disease traceable to milk? 

A. It had periodically. Before 1907, and from 1907 to about 1915, 
we would uncover some epidemic of some kind or other, in which it was 
possible to positively demonstrate that the disease, the epidemic, had been 
spread by milk. In addition, there were reports of other instances in 
which we believed milk to be responsible for these diseases, in which we 
were not able to furnish convincing proof. It was our belief, but we 
could not demonstrate it. Confirmation of the validity of that opinion 
is had in the fact that since pasteurization became universal in 1917, 
there has been no milk-borne epidemic in that city. Furthermore, the 
general rate amongst certain diseases that are frequently milk-borne, has 
continuously declined. The death rate in Chicago since 1915 from 
typhoid fever has been at no time higher than 1.07 per 100,000. 

Q. Is that a very low rate compared with the rate in other cities? 

A. It is the lowest American rate, and the indications are, unless 
something very inopportune should happen in the remaining months of 
1919, that the rate of 1919 will be much the lowest rate in the world. 
Not all of that is due to the pasteurization of the milk. The water supply 



MILK SURVEY OF THE CITY OF ROCHESTER 193 

is purer than it was before; the disease is better controlled; but one of 
the considerable factors is the fact that the entire milk supply, with the 
exception of a small amount of milk that is sent in, is pasteurized not 
,only by ordinance, but is under observation of inspectors and under 
laboratory control. As I have just stated, the Health Commissioner 
makes the statement that the number of milk-borne epidemics has been 
decreasing, almost in proportion as the milk supply became pasteurized, 
and there has been no milk-borne epidemic of any kind or sort, since all 
of the milk has entered the city going through the pasteurizing plant. 

Q. Are you familiar with the circumstances surrounding the 
epidemic of septic sore throat that occurred in Chicago about 1911 or 
1912? 

A. In the winter of 1911 and 1912. 

Q. Will you state briefly the circumstances of that epidemic? 

A. The epidemic occurred among the patrons of one dairy in the 
greatest part. It was clear as the result of the investigation, that the 
epidemic originated among the patrons of one dairy. That there was 
connection between this epidemic of sore throat and the milk supply, 
there was no question. The difference of opinion arose as to how the 
infection happened to occur. 

Q. What was the nature of this disease you called sore throat ; 
was it ordinary sore throat ? 

A. No, it is a disease that is generally known as septic sore throat. 
My recollection is that there were several thousand cases that were re- 
ported as cases of septic sore throat. 

O. Do you remember whether there have been other epidemics of 
that same character traced to milk in America? 

A. Many such. 

Q. Large epidemics of septic sore throat? 

A. Large epidemics of septic sore throat, traced to infected milk 
supply. 

Q. But you do not think that if the milk has been properly pas- 
teurized it is possible for the milk to carry such infection ? 

A. I do not. 

Q. Do you think pasteurization destroys the infection? 

A. I do, and I think it is the only method of preventing just that 
accident. There is but one practical method of preventing human beings 
from consuming milk containing streptococci and that is by pasteurizing 
the milk, or otherwise cooking it. 

Q. That is, you feel from your knowledge and experience the ex- 
amination of cattle by veterinarians, the ordinaiy physical examination, 
is not sufficiently accurate to determine whether dairy cows are infected 



194 MILK SURVEY OF THE CITY OF ROCHESTER 

with this germ or whether they have udders which are discharging the 
bacteria which might cause this disease ? 

A. I would say so. I would amplify that to this extent, as I have 
just said, a great deal has been written on the subject, many studies have 
been made; there is no unanimity of opinion on it. The only safeguard 
from the consumer's standpoint is to assume that there is no clinical 
method of telling whether the milk that comes from a particular cow 
contains streptococci or not, as the cow passes it, as it is milked. A health 
officer in my judgment in the present state of the case, is bound to pro- 
ceed upon the theory that there is no practical method of telling which 
milk contains streptococci, and which does not. 

Q. Do you know whether such soreness or disease in cows' udders 
is fairly common? 

A. It is. 

Q. Do you look upon it as a constant menace to a community, the 
presence of streptococci in milk? 

A. Yes, I do. 

O. Do you think that the marketing of raw milk in a community 
carries with it that constant threat ? 

A. I do. From the infection of cows do you say ; one of the threats 
that I had in mind in advocating the ordinance of 1908, and in standing 
for similar procedure for all cities since 1908. 

Q. You have been advocating pasteurization for all other cities 
since 1908? 

A. I have. 

O. Have there been many scarlet fever epidemics traced to milk? 

A. A very sad number. My interest in the subject immediately 
arose from a very extensive, most extensive epidemic of milk-borne scar- 
let fever occurring in Chicago — or beginning in Chicago, in about 
February, 1907, and extending until about May, in which there were 
many thousand cases of disease and in which the disease was very 
definitely traced to milk. 

Q. Do you consider the observation or the safeguards which can 
be cast around the employees connected with dairy farms and milk dis- 
tribution by any medical inspection, or inspection by milk inspectors, is 
sufficient to prevent human infection from getting into milk ? 

A. I don't, for the reason that most of the infection, certainly of 
the milk supply, is done by people who are not clinically sick. That is 
the people who infect the milk in the main are people who are carriers, 
are not people who are clinically sick of the disease that they are trans- 
mitting to the milk. I remember particularly one family in the southwest 
part of Chicago, the B, family, who were responsible for several epi- 
demics in my administration, and in a succeeding administration. In no 



MILK SURVEY OF THE CITY OF ROCHESTER 195 

instance did we find the disease typhoid fever being imparted to the 
milk by people who were sick. There were carriers in this family, and 
these carriers were infecting the milk. The same thing holds true of 
every disease. The septic sore throat, diphtheria disease, is imparted, or 
the bacilli are imparted to the milk by people who are not sick, who are 
clinically well, and would be passed as well by any inspectors from the 
Health Department. 

Q. Pasteurization is a barrier against this infection? 

A. It is ; commonly speaking, it is a "Safety First" procedure. 

Q. Will the numbers of bacteria become very large indeed in raw 
milk, if it is not kept very cool? 

A. Thousands of millions; uncountable numbers. 

Q. What is the effect-of pasteurization on these large numbers of 
bacteria that come into the milk from contamination with dirt? 

A. The ordinance in Chicago specifies that the pasteurization must 
kill 99% of all the bacteria and 100% of what ordinarily are referred to 
as the disease or pathogenic bacteria. 

Q. You look upon pasteurization as a safeguard for infants and 
children ? 

A. I do. 

O. Now, in recommending the adoption of such an ordinance for 
Chicago, do you take into consideration the opinion of some scientists 
and medical men that the pasteurization of milk may damage its food 
value ? 

A. I did. 

Q. What is your attitude on that? 

A. That was a question that I investigated very thoroughly, and 
went around to many different cities and talked with health officers of 
those cities and with children's specialists practicing therein. I also con- 
ferred personally and by letter with children's specialists in Chcago and 
in many parts of the country. The prevailing opinion at the time the ordi- 
nance was passed, was that the process of pasteurization decreased the 
food value of milk; decreased perhaps in some slight measure the direct 
food value, but harmed milk in that it tended to increase the amount of 
scurvy and rickets said to be produced by milk. As the result of my 
investigation I came to the conclusion that there was no basis for that 
opinion and had no hesitation in so advising the City Council of Chicago 
and the people throvigh the public press and otherwise. There has been 
no increase in scurvy or rickets in Chicago. My judgment is that the 
process of pasteurization, its very general adoption as a community prob- 
lem makes no particular difference with regard to scurvy. I am a mem- 
ber of the Executive Committee on the Medical Board of the Infant 
Welfare Society in Chicago. All of our babies that are not breast fed are 



196 MILK SURVEY OF THE CITY OF ROCHESTER 

fed pasteurized milk or other forms of milk which has been heated. We 
hear nothing at any of our 23 stations about increase of scurvy, mild or 
severe, as the result of feeding pasteurized milk. 

O. Has pasteurization been adopted by many other American cities 
since Chicago adopted it ? 

A. It has. 

Q. Has pasteurization been followed by the reduction of the milk- 
borne diseases in other cities as well as in Chicago ? 

A. It has. Another of the arguments used was that it put a prem- 
ium on uncleanly methods in the dairy farms and in the milk depots in 
the city. The fact that people spent money to purify milk, that fact that 
these large establishments were constructed,, were visible, were seeable, 
acted as an educational influence on the farmers. The farms and the 
dairies are cleaner now than they were before that ordinance, and in my 
judgment pasteurization has been one of the factors in bringing that 
about ; not the most important, but one. 

Q. Is there anything that the health officer of a city can do to 
prevent the pasteurization being used as a substitute for sanitation or as 
a substitute for cleanliness ? 

A. Oh, yes. In the first place, they have dairy inspection in the 
country and dairy inspection in the city; and they have laboratory con- 
trol. The ordinances, all of them that I am acquainted with, specify that 
the milk before pasteurization, must conform to certain requirem^ents, 
both as to bacterial count, and as to the sanitation of the place where 
it is produced and marketed. All of these are measures to prevent the 
marketing of very bad milk by pasteurizing it. 

Q. You think that an ordinance requiring the pasteurization of 
milk should include some standards for the milk before it is pasteurized? 

A. I do. There are such in the Chicago ordinances ; I think in 
practically all of the ordinances requiring pasteurization; all that I have 
knowledge of. 

Q. That is to say, you think that the milk has to qualify as to 
character in order to be fit for pasteurization? 

A. That is correct. 

Q. Now, in Chicago, do the inspectors of the Health Department 
go into the pasteurizing plants in order to see whether pasteurization is 
properly carried out? 

A. The custom in Chicago is to have all the plans for pasteurizing 
plants brought into the department to be passed upon there; so that the 
plans must first be approved of by the department. I don't think that 
that is required by the ordinances, but that is the custom, whether it is 
required or not. 



MILK SURVEY OF THE CITY OF ROCHESTER 197 

Q. Do the inspectors take samples of the milk before it is pas- 
teurized ? 

A. Before its pasteurization and after pasteurization ; and then on 
occasions they take it at other steps in addition. 

Q. Their object is to determine the efficiency of the process? 

A. The ordinance requires that the apparatus used destroy 99% 
of all the bacteria, and all the pathogenic bacteria. 

O. Are you familiar, Doctor, with the opinion of other experts in 
the United States and Canada, men who are making a profession of public 
health work, on this same subject? 

A. I am. 

Q. You said you were a member of the Commission on Milk 
Standards, New York City. Does that Commission in your opinion con- 
tain men who are qualified to pass expert judgment on such a subject 
as this? 

A. It does ; I think so. Its personnel was very carefully selected. 
I think it is a very well balanced Commission. 

Q. How many members are there of that Commission? 

A. The membership changes; slightly less than 20. 

Q. Were you the first chairman of that Commission ? 

A. I was. 

O. Do you know whether the Commission of 20 men are unanimous 
in their opinion as to the desirability of the adoption of pasteurization 
by cities and towns? 

A. I do. The question has been voted on a half dozen times in 
one way or another since 1911. There is absolute unanimity of opinion 
as to the desirability of pasteurizing the general milk supply of the Com- 
munity. The vote on that question is always unanimous. We have up 
every year, the question of the advisability of obligatory pasteurization 
at all times of certified milk, and on that question we generally vote about 
half and half. On the matter of pasteurizing the general milk supply 
the vote is always unanimous and has been since about 1912. 

O. Do you consider that the personnel of that Commission justifies 
the conclusion that they are as well qualified as any commission that 
could be selected to pass on such a question as the adoption of pasteuriza- 
tion by municipalities? 

A. My opinion is that it is the best opinion available in America. 

Q. You don't think you could get any better opinion as to whether 
pasteurization should be adopted? 

A. My judgment is that it is the best that can be had anywhere for 
that matter — I said "America." 

Q. Do you know whether the findings of that Commission have 
been adopted anywhere? 



198 MILK SURVEY OF THE CITY OF ROCHESTER 

A. Yes, they have been very widely adopted, changed as to details 
to suit local communities ; but the general trend of their conclusions has 
been the basis of every ordinance that has been passed, that I know of in 
this country in the last seven or eight years. 

O. Who are the prominent authorities in the country who oppose 
pasteurization ; are there any ? 

A. I don't think of any. 

O. Has there ever been any opposition to pasteurization in your 
Commission of the New York Milk Committee? 

A. Well there was in 1911, but there has not been since 1911. 

O. Do you know any health authority in the country who has op- 
posed pasteurization? 

A. Well, the only one that I know of in the country is Dr. Goler of 
Rochester. He was a member of the Commission in 1911, and when the 
proposition to endorse pasteurization was up, he voted against it, and 
everybody else voted for it; and my recollection is that there were 22 
members of the Commission at that time, and the vote was 21 to 1 ; and 
then he did not like it; quit and went home. 

Q. Did he retire from the Commission then? 

A. I so understood. 

Q. He attended no other meetings ? 

A. He has never been a member since, and I understand he sent 
in his resignation and went home. 

Q. Do you believe in pasteurizing certified milk? 

A. I do. I voted for it. I mentioned the fact that we voted on it a 
great many years, and I am one of those who has constantly voted for it. 
I voted every time it has been up. Our agreement was that we would 
not abide by a majority vote on that proposition; that we would not 
recommend it as one of the recomendations of the Commission on Milk 
Standards unless there was an overwhelming opinion. And, therefore, 
as I said a moment ago, though there were many majority votes in favor 
of it, we have never recommended it as a compulsory requirement. 

Q. As a matter of fact, milk supply is the most important problem 
before the people of any food problem? 

A. The most important. 

Q. Yes? 

A. Oh, it is 90% of the health problem of the food question. 

Q. And it is the most difficult problem ? 

A. All other foods combined do not make up more than ten per cent, 
of the problem. 



MILK SURVEY OF THE CITY OF R OCHESTER 199 

REPORT OF MEDICAL OFFICER OF HEALTH OF THE 
CITY OF TORONTO, CANADA. 

In a report published in 1915 by the Medical Officer of Health of 
the City of Toronto entitled, "The Safeguarding of Toronto's Milk 
Supply, with Special Reference to Pasteurization," there is contained a 
most concise summary of the more important facts to be considered in 
connection with the pasteurization of milk. After pointing out the great 
value of milk as a food, the report discusses the dangers of milk briefly 
as follows : 

"(1) Dangers from Bovine Tuberculosis. 

The total number of tubercular persons examined in the Research Labora- 
tory of New York City relative to type of tubercle bacilli was 438; and of 
these, 22, or iyz%, had tubercle bacilli of the bovine type (contracted from the 
cow). 

The 438 persons were divided into three groups, according to age: 
1st. 297 persons, 16 years of age or over, among whom only one, or less than 

y^ of 1%, showed bovine tubercle bacilli. 
2nd. 54 persons between 5 and 16 years of age, among whom 9, or 16^, showed 

bovine tubercle bacilli. 
3rd. 84 children under 5 years of age, among whom 22, or 26J^%, showed 
bovine bacilli. 
The foregoing cases, with the addition of the total number of those exam- 
ined by other investigators (which Dr. Park accepted as reliable after a careful 
analysis), total 1,038; and of this number 101, or 9i^, showed tubercle bacilli 
of the bovine type. If the 1,038 cases are divided into three groups according 
to age we have the following: 
1st. 686 persons, 16 years of age or older, among whom 9, or 1%%, showed 

bovine tubercle bacilli. 
2nd. 132 persons, between 5 and 16 years of age, among whom 33, or 25%, 

showed bovine tubercle bacilli. 
3rd. 320 persons, less than 5 years, among whom 58, or 26^^%, showed bovine 
tubercle bacilli. 
Dr. Park made the following significant statement which is contained in a 
recent annual report of the United States National Association for the Study 
and Prevention of Tuberculosis : 

'When the diagnoses of cases entering Mt. Sinai Hospital and the 
Babies' Hospital of New York, were examined, it was found that the 
majority of cases of meningitis, supposedly due to the meningo coccus, 
were really tubercular in character. Fifteen per cent, of the cases of 
broncho-pneumonia and marasmus were also found to be cases of tuber- 
culosis.' " 

The report also quotes the findings of such leading authorities on 
tuberculosis as Dr. Ravenel of the University of Missouri; Professor 
Sims Woodhead of Cambridge University, England; Professor Delepine 
of Manchester, England; Professor Bang of Copenhagen; and sum- 
marizes their statements as follows : 



200 



MILK SURVEY OF THE CITY OF ROCHESTER 



"The uniformity of the findings of all these investigators is inspiring and 
convincing, their conclusions being that, conservatively estimated, twenty-five 
per cent, of all cases of tuberculosis under 16 years of age is of the bovine type. 
It is apparent then that tuberculosis, as contracted from cows through the 
medium of their milk, exists in children to a degree that cannot be longer 
disregarded by Departments of Public Health, and demands immediate action. 

To attempt to remove this danger of bovine tuberculosis by excluding from 
dairy herds all cattle suffering from tuberculosis would mean a milk famine, 
the cost would be prohibitive, and even then the milk would not be safe without 
pasteurization." 

The report then refers to typhoid fever, scarlet fever, and diphtheria, 
as follows : 



"(2) Typhoid Fever. 

The following table has been taken from a pamphlet recently issued by 
Dr. Charles E. North, Consulting Sanitary Expert, and Secretary of the Com- 
mission on Milk Standards, New York City. 

This table represents a few only of the 317 outbreaks of typhoid fever 
traced to raw milk: 

Glasgow, Scotland 500 cases from one raw milk supply. 

Cologne, Germany 270 " 

Port Jervis, N. Y 59 " 

Springfield, Mass 182 " 

Oakland, Cal 262 " 

Montclair, N. J 107 " 

Stamford, Conn 307 " 

These would have been prevented by pasteurizing the milk. 

(3) Scarlet Fever. 

125 epidemics of scarlet fever traced to raw milk supply, of which the fol- 
lowing are a few examples : 



Buffalo, N. Y. 
Washington, D. C. 



57 cases from one raw milk supply. 
33 " " *' 



London, England 284 " 

Beverley, Mass 6 " " " 

Liverpool, England 59 " " " 

Mt. Vernon, N. Y 45 " " " 

Boston, Mass 195 " 

Pasteurization is the only means by which this danger can be eliminated. 

(4) Diphtheria. 

51 epidemics of diphtheria have been examined of which the following are 
a few illustrations : 



Brooklyn, N. Y.. 
Los Angeles, Cal. 
Wellsvale, N. Y. 
Clinton, Ohio . . . , 
Highpark, Mass. . 
Warwick, R. I. . . 



12 cases from one raw milk supply. 

35 " 
84 " 

36 " 
69 " 
64 " 



No epidemics have thus far ever been traced to pasteurized milk. 



MILK SURVEY OF THE CITY OF ROCHESTER 201 

(5) Septic Sore Throat. 

Considerable interest has been aroused during the past four or five years 
as the result of a high mortality due to septic sore throat. Many of these out- 
breaks have been traced directly to the milk supply, partially through contamina- 
tion by the handlers of the milk, who were affected or were carriers, and 
partially through an organism which is found in the diseased udder of the cow. 
Six hundred cases of sore throat in Stockholm in 1908 were traced to an abscess 
in the udder of a cow, which contained the same organism that was found to be 
responsible for the sore throat. This animal was one of a herd that furnished 
milk to those that became infected. This was one of the first observations made 
in this connection, and different outbreaks have been traced to this source since. 

A very exhaustive study was given to the outbreak in Boston in May, 1911, 
where 1,043 cases were traced to one raw milk supply. In Chicago, 111., an out- 
break of 10,000 cases was traced to one raw milk supply; in Baltimore, 602 
cases; and in Cortland-Homer, N. Y., 669 cases. This disease seems to attack 
adults especially. , 

Pasteurization would have made these outbreaks practically impossible. 

It was on these findings, together with the information already in the 
possession of the Board of Health of New York, that they decided to pass an 
ordinance in 1912, requiring all milk not coming from cattle free from tuber- 
culosis, as determined by the tuberculin test, and not produced under conditions 
necessary for the production of a certified milk, to be scientifically pasteurized. 
This ordinance was not rigidly enforced until 1914. That it has been for the 
past year rigidly enforced is evident from the following extract taken from the 
Weekly Bulletin of the Department of Health of New York City, June 6, 1914 : 
'The situation regarding compulsory pasteurization of all except the 

highest grade of milk sold in this city is extremely satisfactory, at the 

present time, about 99% of the city's supply being efficiently pasteurised. 

This represents an enormous improvement over conditions a year ago, and 

should make milk-borne disease a rarity in this city.' " 

The author, Dr. Charles J. Hastings, Health Officer of Toronto, 
then apologizes for presenting further arguments in favor of pasteuriza- 
tion by saying : 

"In all advances of science there are always a few who cannot keep 
pace with advancement, and they expect others to wait for them. It is 
therefore necessary to repeat and repeat over and over again. 

I am reminded here of Lord Cromer's address at the Annual Confer- 
ence of the British Research Defence Society in London in July, 1910, 
when the question of inoculation of animals was under discussion, in which 
he said : 

"It seems unfortunate that we should have to waste time on prob- 
lems that are so self-evident, in order to meet the objections of those 
who value the life of a guinea pig higher than that of a baby." 
He consoled himself by quoting the statement made by Mr. Cobden in 
the British House of Commons when endeavoring to bring about the repeal 
of the Corn Laws, which was as follows : 

'I have come to the conclusion that the only way to get an idea 
into the heads of the British public is to repeat the same thing over 
and over again in slightly different language.' 



202 MILK SURVEY OF THE CITY OF ROCHESTER 

This finds a fitting application in our present educative campaign in 
the necessity for pasteurization." 

(6) Effects of Pasteurization on Milk 

"The work done at that time by Schroeder and Cotton in connection with 
the experimental stations of the Bureau of Animal Industry was most valuable 
and has frequently been quoted since. They demonstrated that tubercular 
cattle discharged tuberculosis germs from their bowels almost constantly — at 
times to the extent of tens of millions per day. 

In demonstrating the efficiency of pasteurization, so far as the tubercle 
bacillus is concerned, they inoculated several hundred guinea pigs with the milk 
in its raw state from these tubercular cattle. Every one of the little animals 
showed general tuberculosis. Over 200 guinea pigs were injected with milk 
from the same cow after it had been pasteurized at a temperature of 140 degrees 
for thirty minutes. Not one of these developed any signs of tuberculosis." 

The author gives the names of numerous other authorities who have 
confirmed this work. 

He then submits statements from numerous authorities regarding 
the chemistry of milk showing that the temperatiu"es used in pasteuriza- 
tion do not damage milk in any way or change its chemical condition. 
Among other statements as to the food value of pasteurized milk is the 
following : 

" In a recent careful study carried on in Washington 351 babies fed on raw 
milk gained on an average of .4030 oz. a day, while 557 babies fed on pasteur- 
ized milk gained on an average of .4077 oz. One hundred and ten babies were 
fed for part of the time on pasteurized milk. During the raw milk period they 
gained on an average of .4312 oz. and during the pasteurized milk period an 
average of .4607 oz. Some of the leading authorities in England and United 
States are now advocating the use of boiled milk, the digestibility of which one 
might possibly suspect as being unfavorably affected. 

Dr. North in referring to the digestibility of pasteurized milk gives the 
following practical evidence : 

'Fortunately New York City has the past three years carried out 
a gigantic experiment in infant feeding at its fifty-five (55) municipal milk 
depots, where babies are fed the year round, to the number of 18,000 daily 
in summer and 16,000 daily in winter. For three years all of this milk has 
been scientifically pasteurized. Records have shown that the babies have 
gained weight ; have kept well ; have shown no signs of rickets or scurvy, 
and in every way gave evidence that pasteurized milk is not inferior in food 
value or digestibility to raw milk. 

'The death rate among infants during this period has been reduced 
from 125 per thousand to 94 per thousand, which places New York City 
in the lead of any large city in the world in the reduction of infant 
mortality.' 

Numerous other instances could be quoted of the unchanged nutritive value 
of pasteurized milk, but the foregoing are more than sufficient to demonstrate 
this fact. 

It was with a knowledge of these facts that the International Congress of 
Tuberculosis held in Washington in 1908, unanimously passed a resolution that 



MILK SURVEY OF THE CITY OF ROCHESTER 203 

all milk not coming from herds shown to be free from tuberculosis, should be 
scientifically pasteurized. The National Association for the Prevention of 
Tuberculosis, the Canadian Association for the Prevention of Tuberculosis, and 
the Canadian Medical Association subsequently passed similar resolutions. 

It was with a knowledge of the dangers of transmission of tuberculosis, 
together with the dangers of the transmission of other communicable diseases 
and the dangers of diarrhoeal diseases through raw market milk, that prompted 
the Committee on Milk Standards, and subsequently, the American Public 
Health Association and the American Medical Association, as well as the 
Association of State and Provincial Health Officers, to pass a resolution that 
all milk not coming from herds free from tuberculosis, as demonstrated by the 
tuberculin test, and not obtained under conditions corresponding to those 
required for the production of certified milk, should be scientifically pasteurized 
before being used for human consumption. 

At the International Pure Milk Congress held in Brussels in 1907, the use 
of raw milk for infant feeding was officially condemned and pasteurization 
advocated. 

It was with a knowledge of these facts that the Minister of Agriculture for 
France in 1912 had legislation passed prohibiting the sale of any milk in France 
that had not been properly pasteurized. The Minister of Agriculture had 
behind him in this move a solid block of all the scientific and legislative powers, 
including : Professor Bordeau, of the College of France ; Professor Metchni- 
koff of the Pasteur Institute; the President of France, the Deputies, the Sen- 
ators, the Ministers, the Pasteur Institute, the College of France, and the 
Medical Faculty. 

Prof. William T. Sedgwick of the Massachusetts Institute of Technology, 
and President-elect of the American Public Health Association, says: 'I have 
long been a believer in the necessity of pasteurization and went on record to 
this effect in my first paper on milk supply and public health in 1892, reiterating 
the same views in Sanitary Science and Public Health the same year. The 
opinion then expressed I hold substantially in the same form and for the same 
reasons today.' 

Denmark, the country that practically leads the world in dairying and in 
efforts to control tuberculosis amongst cattle and hogs, goes so far as to require 
that all skimmed milk and buttermilk required for the feeding of animals must 
be pasteurized, and also all cream used for the manufacturing of butter or ice 
cream. 

One of the most valuable advances towards the more general control and 
safeguarding of the milk supply in the United States and Canada was the 
appointment of the Commission on Milk Standards. The appointment of this 
Commission was the direct result of the observations of the New York Milk 
Committee, that there was great incompleteness and lack of uniformity in the 
milk standards, milk ordinances and rules and regulations of public health 
authorities throughout the country for the control of public health supplies. 

In the report issued by this Committee, regulations of standards were pub- 
lished to govern milk supplies in the various municipalities permitting of modi- 
fications to meet certain local conditions. The one recommendation, however, 
which was universal was that all milk not coming from tuberculin tested cattle 
and procured under the conditions necessary for the production of a certified 
milk, should be efficiently pasteurized. 

As has been recently expressed in the New York Medical Record: 



204 MILK SURVEY OF THE CITY OF ROCHESTER 



'The antiquated, fetish-like arguments against pasteurization, like 
floating corks, keep bobbing above the surface ; but pasteurization has come 
to stay, and its success in everyday practice, year after year, and in the 
case of thousands upon thousands, yea, hundreds of thousands of infants 
v/hose lives have been saved by it, should quiet all hostile arguments.' " 

TESTIMONY OF MR. J. H. LARSON 

Mr. J. H. Larson, Secretary of the New York Milk Committee, 
appeared as a witness for the Survey at a hearing held in the City Hall, 
Rochester, on September 16, 1919, and testified on the subject of pas- 
teurization as follows : 

Q. Now, Mr. Larson, your work as Secretary of the New York 
Committe has made it necessary for you to keep in touch with the gen- 
eral milk problem in other cities of the United States, has it not? 

A. We very often receive requests for co-operation or for sug- 
gestions for milk control. 

Q. But in a general way do you make it your business to keep 
posted as to the progress in milk improvement in other cities of the 
United States and Canada ? 

A. We make it a business to take an interest in them. We do not 
keep an actual tabulation of facts. 

Q. During the period you have been employed by the Milk Com- 
mittee do you know whether or not there has been a tendency on the 

part of cities in the United States and Canada to adopt pasteurization of 
milk? 

A. Yes, there has been. 

Q. Do you think it is a good thing for any city to make pasteuriza- 
tion compulsory? 

A. I believe it is. 

Q. You believe it is? 

A. Yes. 

Q. Do you think that it adds to the safety of milk to pasteurize it ? 

A. Yes, I believe it does. 

O. Do you think that raw milk is not sufficiently safe without pas- 
teurization ? 

A. Milk, though it is the best food we have, is also the best medium 
we have for carrying germs of infectious disease ; bacteria grow in milk, 
and epidemics, typhoid, scarlet fever, sore throat, etc., all have been milk- 
borne, and that I have taken a part in investigating. I cannot feel that 
any raw milk is safe. 

O. Will you mention one epidemic that you personally have in- 
vestigated which makes you think that raw milk is unsafe ? 

A. Well, there was an epidemic at Cortland, New York. 



MILK SURVEY OF THE CITY OF ROCHESTER 205 

Q. What did you find there ? 

A. This was an epidemic of septic sore throat. It was found that 
the infection came from the udders, I think, of two cows. Laboratory 
tests revealed this infection ; but not until, I believe, there were upward 
of 600 cases. 

Q. Six hundred cases of what? 

A. Septic sore throat, very severe cases. We had twelve deaths; 
one banker among them, a prominent citizen. 

Q. Where did this milk come from ? 

A. From a small producer outside of the city. 

Q. How was it distributed ? 

A. I am not positive whether it was distributed loose or in bottles. 

Q. Was it distributed by the producer? 

A. I believe it was ; yes. 

Q. Was it distributed only in Cortland? 

A. No, it was distributed also in Homer. 

Q. In the town of Homer? 

A. Yes, two miles from Cortland. 

O. Was there an epidemic there also? 

A. Yes, sir. 

Q. At the same time? 

A. Yes, and same cause. 

Q. What reason had you to believe that the epidemic was due to 
milk distributed by this farmer? 

A. Because it was in the herd of this farmer that the diseased 
udders of the cows were found. 

Q. Where were these cases found among the customers? 

A. On the milk route of this distributer. 

Q. Almost entirely confined to those people? 

A. The outbreak of the epidemic followed his routes ; there were 
many of course, contact cases. 

Q. But most of the cases — 

A. Most of the cases were on this route. The statistical evidence 
pointed absolutely to this possible source of infection. After that, the 
problem was to find out what was the cause of this infection and that 
was done as I said, and the bacteria found in those udders were the 
same, as found in the throats of the people who had this disease. 

O. Do you know what the attitude of the health officers and 
medical men of that town was? 

A. Yes. This was raw milk and raw because of the opposition of 
the medical authorities and profession of the municipality to the pas- 
teurization of milk because pasteurization was alleged to impair its food 



206 MILK SURVEY OF THE CITY OF ROCHESTER 

value as well as to make it unfit for the delicate digestive organs of 
infants. 

Q. Do you know whether the attitude of the medical profession of 
that city was changed any by this epidemic? 

A. Yes. 

O. You think they changed their minds? 

A. Yes. 

Q. You think the medical men and health ofificer now favor pas- 
teurization of milk? 

A. Yes. 

O. Is it not a fact that after this epidemic they requested or asked 
whether some arrangement could not be made for pasteurizing milk for 
their city? 

A. Yes. 

Q. Was there any other epidemic or disease that you have investi- 
gated, due to milk ? 

A. Up until two years ago I had a part in investigating, I have per- 
haps for a period of four years, every epidemic in New York State that 
could possibly have a suspicion of being a milk-borne epidemic. I had 
a part in the investigation of septic sore throat in Poughkeepsie, New 
York, I think in 1915. 

Q. Will you describe as nearly as you can just what the nature of 
the conditions were that you found in Poughkeepsie ? 

A. Do you mean community conditions? 

Q, I mean the character of the epidemic and its outbreak? 

A. That epidemic in Poughkeepsie was an epidemic that came out 
with a great deal of violence. The attitude on the part of the officials 
was that it was a rather minor epidemic of scarlet fever. I think the 
health officer had as many as eighty-two cases reported ; something like 
that. I was asked to help on a field survey of this epidemic, and in going 
over the field, other investigators and myself found I think, nearly 800 
cases of septic sore throat and scarlet fever in Poughkeepsie and the 
surrounding community. 

Q. Describe just how these cases were divided up and what the 
evidence was that you secured as to the cause of the epidemic? 

A. What do you mean by "division?" 

Q. Please describe what you found as to the way the cases were 
divided geographically and what evidence you found as to the cause of 
the epidemic? 

A. The first cases, or as it turned out later, the first case was found 
on a dairy farm near Wappingers Falls, south of Poughkeepsie; there 
was a small group of cases there. 

Q. How far is that from Poughkeepsie? 



MILK SURVEY OF THE CITY OF ROC HESTER 207 

A. About six miles ; another group, a larger group, at Poughkeepsie, 
and another group at the New York State Hospital, which is four or 
five miles north of Poughkeepsie. In tracing the original cases, it was 
found that those cases had onset — these three groups of cases had onset 
on approximately the same day. The Health Officers in each community 
were looking for the source of the epidemic, independently of the Health 
Officer of any other community. 

Q. Did each one of those communities think they were having their 
own private epidemic ? 

A. Yes, and were busy looking for some manner of controlling it. 

Q. They did not think there was any connection between the three 
of them? 

A. No. Finally it was found that previous to the onset of the 
cases in these three communities, there was a case of a farm hand of 
one of the dairy farms supplying milk in the creamery at Wappingers 
Falls. This milk was traced to the consumers of Wappingers Falls and 
to the consumers in Poughkeepsie, and a part of the supply went up to 
the New York State Hospital. 

Q. That is, this creamery shipped milk to those three places? 

A. Yes. 

Q. Was the milk pasteurized ? 

A. As I recall it, it was not pasteurized, or it was a case of the 
milk being imperfectly pasteurized through the breaking down of the 
pasteurizing machinery. It was not properly pasteurized. 

Q. It was supposed to be pasteurized, but the machinery broke 
down? 

A. Yes. 

O. It broke down at the wrong time ? 

A. Yes. 

Q. It broke down as you found it, just at the time when scarlet 
fever existed on this farm that you refer to? 

A. Yes. 

O. Do you know whether the people and Poughkeepsie and these 
other communities were in favor of pasteurizing milk before that time? 

A. No, they were not. 

Q. They were opposed to it ? 

A. They were strongly opposed to it. 

O. Do you know anything about their attitude since the epidemic? 

A. Their attitude towards pasteurization was changed. Their at- 
titude towards reporting communicable diseases was changed and toward 
their old health administration has changed; they now have a substitute 
one. 



208 MILK SURVEY OF THE CITY OF ROCHESTER 

Q. Have you seen the records of outbreaks of infectious diseases 
in other cities, in other countries due to raw milk? 

A. Yes, I have seen records of those. 

Q. You have a list compiled, have you? 

A. Not with me. 

Q. But you have seen the records? 

A. Yes. 

Q. And it is on those records that you believe milk should be pas- 
teurized ? 

A. Yes. 

Q. In order to prevent those outbreaks ? 

A. No epidemic has ever been traced to milk that was properly pas- 
teurized. Any number of epidemics have been traced to milk that was 
raw or improperly pasteurized. 

Mr. Frank E. Gannett, who appeared as a witness at a public 
hearing, held at the City Hall, Rochester, on July 23, 1919, gave the fol- 
lowing statement : 

I was much impressed too by Nathan Straus' book, "Disease in Milk, 
the Remedy, Pasteurization,' written by his wife. And this book makes 
a very clear case out of his long experience in New York City Milk 
Stations ; I believe, it extended over a period of twenty years, in which 
he reiterates again and again and again that the city's milk supply should 
be pasteurized in order to insure purity. And in the way of pasteuriza- 
tion I thought Rochester was far behind; in fact, in this book he gives 
a table showing that in New York City the pasteurization of the supply 
is 95%, while Rochester he gives only as 20%. 

I think if the pasteurization was carried on in one or two or three 
central plants it might be done cheaper than in a dozen or so plants; 
and what would be a further advantage, the city could see that the pas- 
teurization was properly done. This is just as essential as to have it 
pasteurized. I do not know that we have any protection now, or any 
guarantee, that the milk sold is pasteurized except the reputation of the 
dealer that handles it. We know that certain concerns are reliable and 
we depend upon them. 

Dr. John R. Williams of Rochester, appeared as a witness for the 
vSurvey at a hearing held in the City Hall, August 13, 1919, and testified 
as follows : 

O. Do you think that the milk delivered by the small dealers is as 
safe as the milk delivered by the large dealers ? 

A. I do not. 

Q. You do not, why not? 

A. Well, I base my answer on my personal observations that I do 



MILK SURVEY OF THE CITY OF ROCHESTER 209 

not think the small dealer exercises the precautions that he should in the 
handling of milk. 

O. What precautions do you refer to? 

A. Well, I do not think they adequately wash and sterilize their 
bottles. I have caught small dealers on the street filling bottles out of 
cans and then taking them into the homes. 

Q. Well, what is your opinion regarding the safety of the raw milk 
handled by the small dealer, even if he should properly sterilize the bottles, 
do you think that milk is safe to use ? 

A. I think not. We proved that in one investigation. 

Q. How did you prove it? 

A. I am sorry I did not bring that with me, notwithstanding, I 
think I can tell you in part. I was called one time to see a man in the 
northern part of the city; he was taken ill in a strange manner. To make 
a long story short, he was taken ill, very acutely ill, with the disease we 
cQuld not recognize at the time. We made all sorts of examinations of 
him and many physicians were called into consultation and were not able 
to recognize the nature of his illness. In about three days another mem- 
ber of the family was taken ill in the same way. These two patients 
represented a condition which resembled typhoid fever. That is a dis- 
ease that never had been discovered in this part of the country. We 
thought we were dealing with typhus fever and we sent to Washington 
with the approval of the Health Offcer, and an expert was sent up here 
to assist in this investigation. Dr. Joseph Cole Parker, a bacteriologist of 
international reputation. With his assistance, or in fact, before he ar- 
rived, we determined the nature of this sickness. In the meantime, two 
other members of the family were taken sick. We had determined by 
this time that these were a very peculiar type of typhoid fever. These 
patients were covered with a rash which closely resembled measles ; they 
were covered from head to foot. While we isolated the organism from 
their bodies which made them sick, it did not re-act to the usual typhoid 
tests, nor did it check up with other strains of typhoid organisms after, 
the -manner employed in typhoid diseases usually. The husband was 
sick with this disease for more than six weeks; the wife was sick, acutely 
ill, for eighty- three days and two other members of the family were 
sick for a shorter period of time. This man had a little tailor shop ; it 
was necessary for him to employ all this time a physician ; he had several ; 
some of them he did not have to pay; he had to pay a very considerable 
physician's bill ; but not for these investigations altogether. I estimated 
that — well, after the discovery that these people had typhoid fever, we set 
out to determine where it came from, and we found this man got his 
milk from a small milk dealer and the milk came from a farm out in 
Walworth, so I went out there and took paraphernalia with me and with 



210 MILK SURVEY OF THE CITY OF ROCHESTER 

the co-operation of the Health Officer there, and here I got samples of 
blood, stool and urine from the farmer on this milk farm and from his 
daughter. Both of them gave a history of being sick ; the father had had 
stomach trouble for several months previous, it was so diagnosed, and 
the daughter had just rallied from an attack of pneumonia. Both of these 
people were just alive with typhoid germs and this same peculiar' strain. 
We brought these samples back to Rochester and established the fact that 
those two organisms were identical. I made a note of the location of 
cow barns and the privy house ; the privy was mid way between the cow 
barn and the kitchen, and I have not the slightest doubt that there could 
be no question but what the filthiness of this farmer and the disease were 
connected. I made an estimate of the expense involved at the time to 
this little tailor's family and the other expense involved, and there was a 
loss of at least four thousand dollars in that one instance, doctor bills, 
nurse bills and so on. 

Q. Do you consider that there is a common danger of that kind 
from raw milk delivered ? 

A. I do. 

O. By small dealers? 

A. By all dealers, large and small. 

Q. Do you think that Rochester is exposed to such dangers through 
the raw milk it receives? 

A. I do. 

Q. Does that include other diseases besides typhoid? 

A. Yes, other diseases. 

Q. What do you think ought to be done to make that milk safe? 

A. Well, I pasteurize the milk in my home before I use it. 

Q. Do you recommend that all citizens of Rochester should pas- 
teurize the milk in their homes? 

A. I do, at the present time, because there is no regulation requiring 
its being pasteurized. 

Q. Would you be in favor of a regvilation requiring that it should 
be properly pasteurized ? 

A. Yes. 

O. By the dealer? 

A. Yes, under municipal supervision. 

Q. Do you think that it would lead to the advantage of the citizens 
of Rochester from a public health standpoint, if Rochester had a regula- 
tion requiring the pasteurization of all its milk ? 

A. I do. 

Q. Do you know approximately how much of the milk supply of 
Rochester is pasteurized at present? 



MILK SURVEY OF THE CITY OF ROCHESTER 211 

A. I do not. 

Q. You know that Rochester has no such regulations ? 

A. Yes. I know that the Health Officer is opposed to that. 

Q. Do you think the advantages of pasteurized milk are greater 
than the disadvantages? 

A. I do not know any disadvantages. I do not know any patent 
disadvantages. There are alleged disadvantages, but I do not know of 
any real objection to it. 

Q. Getting back to pasteurization. The pasteurization of milk is 
now absolutely under the control and supervision of the municipality, is 
it not, in those plants that do pasteurize? 

A. Theoretically it is ; but practically I do not think so. 

Q. Do they not maintain their heat, uniform heat, and is not that 
evidenced by automatic records in these plants that have to be turned into 
the Health Bureau ? 

A. I have no confidence in the way it is done; the Health Officer 
is not in sympathy with it. I would not say this, but I do not believe that 
the Health Officer pushes the matter. I do not think the thing is regu- 
lated or controlled the way it should be. 

Q. He is not in sympathy with pasteurization at all ? 

A. No. 

CERTIFIED MILK COMPARED WITH PASTEURIZED MILK 

This testimony was given by Dr. Henry H. Covell of Rochester, 
Secretary of the Monroe County Medical Milk Commission, who ap- 
peared as a witness at a public hearing held in the City Hall, July 23, 
1919. A part of his testimony was as follows: 

Q. You are Secretary of the Monroe County Milk Commission? 

A. Yes. 

O. What are the duties and objects of the Monroe County Milk 
Commission ? 

A. This Commission, appointed by the Monroe County Medical 
Association, has to do with the regulation and control of what is known 
as certified milk. 

Q. Who are the other members of the Commission now? 

A. Dr. J. W. McGill is the President of the Commission, and Dr. 
E. G. Nugent is the Treasurer. Other members of the Commission are 
Drs. J. R. Culkin, S. W. Little, Norris G. Orchard. There may be one or 
two more I do not recall at the present time. 

Q. You spoke of some one being Treasurer. Does this Commis- 
sion have funds? 

A. Yes. 

Q. Where does it get them ? 



212 MILK SURVEY OF THE CITY OF ROCHESTER 



A. There is a small charge from the producers for certifying. 

Q. What does the Commission do with its funds ? 

A. Well, largely meets small matters of expense that they have; for 
instance, we pay the bacteriologist a small fee for his work. 

O. For examinations? 

A. For examinations of milk. There are small matters of book- 
keeping — all outside. Largely questions of that sort — no salaries to any- 
body outside of the bacteriologist. If the report from the bacteriologist 
indicates conditions that are not satisfactory to the Commission, I, or the 
members of the Commission as well, get in touch with the producers, or 
visit the farms where the milk is produced and try to locate the difficulty. 

Q. Now, the bacteriologist examines this milk for what purpose? 
What is the character of the examination ? 

A. He determines the number of bacteria per cubic centimeter; 
also the percentage of fat content; also, I suppose you might say, an 
ocular examination to determine whether or not visible dirt is present. 
Possibly, sometimes the temperature of the milk at the time of the ex- 
amination may be taken, but those four things are the main divisions of 
his examination. 

O. These samples are furnished by dealers to the bacteriologist? 

A. Through the medium of the distributer. I might say that among 
other things, the requirement is that the examination of milk to con- 
form with these requirements, shall indicate a bacterial content of not 
to exceed ten thousand per cubic centimeter. 

Q. How many farms produce certified milk to the City of 
Rochester ? 

A. Four at the present time. 

Q. Does any veterinary make an examination of the herds ? 

A. Twice a year we have the cattle examined for tuberculosis and 
incidentally for other conditions that may appear. There is a vast differ- 
ence betwen the production and handling of certified milk, and the pro-' 
duction and handling of the ordinary grade of milk. 

O. Your certification of milk means then that the premises, cattle 
and conditions generally under which it is produced, are made the sub- 
ject of examination by your Commission and that your Commission be- 
lieves it to be safe for consumption ? 

A. Yes. 

Q. Are the records of the tuberculin test that have been made on 
certified herds of Rochester kept on file ? 

A. Yes. 

Q. Do they find re-actors? 

A. Sometimes. 

Q. Even after all their precautions have been carried out? 



MILK SURVEY OF THE CITY OF ROCHESTER 213 

A. Yes. 

O. So that even after every precaution has been exercised, there is 
alvirays a menace from cattle diseases ? 

A. Yes. 

Q. Do cows frequently have sore udders ? 

A. In my limited experience I should say "Yes" to that. 

Q. Is it not true that it is necessary to frequently examine a dairy^ 
herd in order to detect the presence of sore udders? 

A. Yes. 

Q. Would you look upon sore throats among dairy employees as a 
menace to the milk? 

A. Yes, sir. 

O. Does your examination require that these employees should be 
healthy with reference to throat health or disease? 

A. Yes. 

Q. Well, what is your view regarding raw milk over which these 
precautions are not exercised; do you think that the milk is less safe than 
the certified milk? 

A. I think it less safe. 

Q. Do you think it is dangerous ? 

A. The possibilities are very great. 

Q. Do you think the danger from cattle disease is very great? 

A. Yes, sir. 

O. Well, do you think that cattle that produce the raw milk supply 
of Rochester are examined frequently enough to protect the raw milk 
supply from cattle diseases? 

A. As a consumer of grade milk, or milk that is not certified, I 
must say that sometimes I have felt a little bit uneasy about the quality 
of milk that I have been receiving. 

Q. Well, you look upon these precautions you speak of as necessary, 
you say, to safeguard raw milk? 

A. I think so. 

Q. Then, where they are not exercised, the raw milk is not suffi- 
ciently well safeguarded to be consumed in a raw condition? 

A. I do not know exactly what to say in answer to that. 

Q. Well, would you say that the public health was not properly 
safeguarded in a raw milk supply over which these precautions were not 
exercised ? 

A. In a general way, possibly so. 

Q. You think there is danger in the fact that the raw milk is not 
safeguarded as well as certified milk? 

A. I guess I can answer that question in the affirmative. 



214 MILK SURVEY OF THE CITY OF ROCHESTER 

Q. Under those circumstances would you recommend the raw milk 
which does not receive such safeguards as certified milk, had better be 
pasteurized ? 

A. I think so. 

Q. You look upon pasteurization as a proper public health measure ? 

A. I am in favor of it. 

O. To be applied to raw milk which is not protected as well as 
certified? 

A. Yes. 

O. Would you recommend that all the children of Rochester should 
use certified milk? 

A. Theoretically, I suppose "Yes"; but practically, it is too ex- 
pensive. 

Q. Well, what would you prescribe to the children of Rochester 
who cannot afiford certified milk? 

A. Apparently the only thing you could say would be "pasteurized 
milk." 

Q. You would not prescribe raw milk? 

A. I think not. 

Q. You would prescribe pasteurized? 

A. Yes. 

Q. Do you think it would make the raw milk safer to pasteurize it? 

A. I think it does. 

Q. Is that of sufficient advantage to a community to justify a 
regulation requiring it? 

A. I can imagine a situation might arise when that would be so. 

Q. Would it be a constant safeguard that would be to the advan- 
tage of the city? 

A. I believe so. 

Q. There is no reason why reasonable sanitary precautions cannot 
be enforced in addition to pasteurization ? 

A. Not that I know of. 



MILK SURVEY OF THE CITY OF ROCHESTER 215 

TESTIMONY OF DR. GEORGE W. GOLER 

The attitude of the Health Officer of Rochester, Dr. George W. 
Goler, on the subject of pasteurization is indicated in his testimony de- 
livered as a witness at one of the public hearings held in the City Hall 
on July 16, 1919, which was, in part, as follows: 

"Then came the time of pasteurization. In our milk stations we 
tried to pasteurize the milk for a little while and then gave it up in 
disgust. We found that the milk that came to us was so dirty that we 
believed, by our advocacy of pasteurization, we were simply aiding the 
milk man in bringing into the city dirty milk and puttng off the day to be 
hoped for, when milk would be sold so comparatively clean that it might 
be pasteurized. People ought to know in regard to the milk of Roch- 
ester, if there is only two grains in a quart of milk, that every year the 
population of Rochester are drinking three tons of liquid manure. We 
say that three tons of manure ought to be an absolute limit. We want 
the men to keep it on the farm. We don't want it in the milk. Without 
going into detail, that is the main reason why, so far as I personally am 
concerned, that I have always fought pasteurization, because pasteuriza- 
tion to me was very similar to that plan of putting a little formaldehyde 
in the milk to enable the milk man to bring it into town without spoiling, 
or that he might sell it without purifying it." 

Q. You spoke about welfare stations. Tell us about those welfare 
stations. 

A. In those stations in the first years, we pasteurized milk, as I 
say, but we gradually gave that up, because we felt that the milk was so 
dirty, that is, the general milk supply was so dirty — we could get clean 
milk in the city — if we gave to the people of Rochester the impress of 
our opinion that pasteurization was a desirable thing, we should then 
simply put off the day when milk would be clean enough to be favorably 
influenced by that kind of pasteurization, which should not be pasteuriza- 
tion for the sake of the milk man ; but pasteurization for the sake of the 
family. 

Q. Doctor, what is the object of pasteurizing milk? 

A. There are several objects. The first object of pasteurizing milk 
is to make the milk so it won't spoil, and so the milk can sell. It is a 
milk man's process. The next object to pasteurize milk is to prevent dis- 
semination of infectious diseases, typhoid particularly. And still an- 
other object is to prevent the multiplication of certain organisms which 
no doubt further and aid in the production of acute bowel diseases of 
children. Those are the general objects. But the first object of pas- 
teurizing — you don't want to lose sight of the fact that the pasteurizing 



216 MILK SURVEY OF THE CITY OF ROCHESTER 

of milk was first for the purpose of making bad milk keep so the milk- 
man could sell it. 

Q. The pasteurization of milk consists in heating to 145 Fahrenheit 
and keeping it there. 

A. I never attempted to develop it; but it is a sort of process — 
anything to heat the milk up to a temperature so the thing would keep 
in the beginning. 

Q. But there is a standard temperature for pasteurization? 

A. There is a standard temperature for pasteurization. 

Q. 145 or 150 degrees which you have quoted? 

A. And that process of pasteurization carried out as a supple- 
mentary measure is of value. The sanitary safeguards thrown around 
milk is a highly desirable procedure. 

Q. Now, there are certain organisms that will not kill? 

A. Yes, sir. 

Q. But the organisms which develop infectious diseases like typhoid 
and septic sore throat and scarlet fever, it will kill if it is raised to that 
heat ? 

A. We don't know anything about scarlet fever, so we don't know 
whether it will kill scarlet fever or not. It does affect typhoid, of course. 

Q. Now, you take the position, I understand. Doctor, that pasteur- 
ization is objectionable because dealers are likely to use it to cover up 
unsanitary milk and unsanitary conditions, to make dairy milk salable 
and more or less harmless ? 

A. Yes, sir. I won't subscribe to the latter part of that statement. 
If you mean the established method, a correct scientific method of pas- 
teurization, then I will subscribe to the latter part of your statement. 

O. Then there is no objection to carrying out strict sanitary meas- 
ures, and also pasteurizing milk? 

A. Given strict sanitary measures and scientific pasteurization, of 
course. 

Q. What are proper sanitary conditions? 

A. I want as little cow manure — and every other city — as we can 
possibly find in it. As I said this morning, we ought not to have more 
than three-quarters of a ton of cow manure in our milk a year. 

Q. What are the effects of cow manure in the human system? 

A. I don't think it has been determined. 

Q. It is a disgusting thought, isn't it? 

A. Doubtless makes children sick. The poorer the care, the dirtier 
the milk. Clean milk and good care are rather companionable. Dirty 
milk and bad care— how much is due to dirty milk and bad care, and 
how much to clean milk and good care, nobody knows. 



MILK SURVEY OF THE CITY OF ROCHESTER 217 

Q. There are various cities in this country about the size of Roch- 
ester or larger, that require that all milk should be pasteurized and sold 
as pasteurized milk? 

A. Yes, sir. There are certain provisions in the State Milk Law of 
New York State which provide for it. 

Q. That is required as to the supply of the City of New York? 

A. I don't know. 

Q. Philadelphia, how about that? 

A. I don't know. I don't know about the pasteurization require- 
ments relating to any city at the present time. 

Q. Has there ever been agitation in the City of Rochester that you 
have known of, to get such a requirement in force? 

A. Oh, yes. The milk ordinance of the City of Rochester is the 
milk statute of the state, the Statute of the State Department of Health, 
and that is complied with. Of course you know the State Department 
of Health has a splendid statute under which it graded milk, i. e., Grade 
"A" for Grade "A" people who had Grade "A" pocketbooks ; Grade "B" 
for Grade "B" people who had Grade "B" pocketboks; Grade "C" for 
Grade "C" people with Grade "C" pocketbooks. That is a fine ordinance. 
If you had Grade "A" water that would be Grade "A" water absolutely 
protected from typhoid, Grade "B" would be some other kind of water. 
Grade "B" water would be the water now fed to a lot of residents in the 
neighborhood of Manitou. I just saw a woman who had typhoid as a 
result of drinking the water down there. We should have a comparison 
betwen the milk graded in that way as in the case of water. A, B, C 
grades indicate degrees of wholesomeness. It indicates the degree of care 
which the milk has been put through and the degrees of care with which 
it has been handled. 

O. How do you feel yourself about the sale of raw and pasteurized 
milkT 

A., I am in favor of the sale of raw milk until such time as suffi- 
cient sanitary safeguards are thrown around milk to make it safe for pas- 
teurization. I have never been in favor of pasteurizing all kinds of milk 
as in the pasteurization craze which passed over Rochester. 

Q. If pasteurization does do something towards rendering milk 
wholesome for human consumption, isn't it a mistake to delay pasteuriza- 
tion of the milk? 

A. I don't think so. 

Q. You advocate continuing sale of raw milk, which may contain 
those dangerous organisms which may be destroyed by pasteurization — 
to the people of Rochester? 

A. I do. 



218 MILK SURVEY OF THE CITY OF ROCHESTER 



Q. You would kill them? 

A. No, it might contaminate them. It may kill a lot more people, 
and it may put off the evil day, as it doubtless does. Witness this hear- 
ing. I don't mean this is the evil day. This is one of the best milk days 
Rochester has had. 

Q. What do you think ought to be done, if anything, to the regula- 
tions here in Rochester in order to improve the supply of milk? 

A. Well, there are only some small though important changes in 
the regulations: those regulations for temperature, of the milk coming 
in; the regulation for a tubercular test; the better enforcement of the 
regulations relating to the cleanliness of dairies, so that one might bring 
it so that there were only two or three or ten per cent, that were below. 
Then, of course, the introduction of the ordinance for pasteurization. 

In order to clear up any doubt in the minds of the Health Officers 
of the State of New York as to what is meant by the term, "pasteuriza- 
tion," and to remove any obstacle in the way of the adoption of pas- 
teurization based on the ground that there are no standards for this 
process, the State Health authorities define pasteurization as follows : 

"Regulation 12. Pasteurization. Except where a dififerent standard of 
pasteuriaztion has been adopted previous to the 1st day of September, 1914, by 
the local health authorities, no milk or cream shall be sold, or offered for sale, 
as pasteurized, unless it has been subjected to a temperature of 142 to 145 
degrees Fahrenheit for not less than thirty minutes, and no milk or cream 
which has been heated by any method shall be sold or offered for sale unless 
the heating conforms to the provisions of this regulation. 

After pasteurization, the milk or cream shall be immediately cooled and 
placed in clean containers and the containers shall be immediately sealed. No 
milk or cream shall be pasteurized more than once. This regulation shall take 
effect throughout the State of New York, except in the City of New York, 
on the 1st day of January, 1916." 

Consequently, since the 1st day of January, 1916, the heating of milk 
or cream by any other process than the process above designated has been 
illegal, and it is proper therefore to assume that, if other processes of 
heating have been used in Rochester, or in any other municipality, since 
January 1st, 1916, the same has been due to wilful neglect of the enforce- 
ment of the State regulations, either by milk dealers or local health 
officers. 

As previously stated, the City of Rochester has no milk regulations 
of its own. It has depended entirely upon the state regulations for the 
control of its milk supply. The attitude of the State Public Health 
authorities is one which makes it clear that cities of the first class are 
expected to pass regulations of their own which are most stringent than 
the state regulations. While the state authorities have given a clear 



MILK SURVEY OF THE CITY OF ROCHESTER 219 

definition of pasteurization, yet the adoption of pasteurization by the 
cities of the state is entirely optional. Consequently, the fact that the 
City of Rochester has not adopted more stringent regulations since the 
state regulations were promulgated in November, 1914, and has not 
adopted any regulation requiring the pasteurization of milk since the state 
authorities defined pasteurization on the same date, is a responsibility rest- 
ing entirely on the shoulders of the public health authorities of the City 
of Rochester. 



220 MILK SURVEY OF THE CITY OF ROCHESTER 

RECOMMENDATIONS 

In undertaking to make recommendations based on a survey of this 
kind, these recommendations would be expected to follow certain con- 
clusions drawn from the evidence presented. 

The material which has been collected in this report is of such a 
character that in each department of inquiiy it seems to lead so obviously 
to certain conclusions that the director of this survey believes these con- 
clusions appear on the face of the evidence presented in the previous 
pages and that they are sufficiently plain to any intelligent reader. Con- 
sequently, no attempt will be made to draw up a complete list of con- 
clusions. 

The following recommendations are presented in the belief that the 
material of this report and the conclusions which are so obvious form a 
basis which must be recognized as justifying the recommendations here- 
with presented. 

These recommendations are divided into four parts as they apply to 
four groups of persons, viz., to the city authorities, to milk producers, to 
milk dealers, and to milk consumers. 



RECOMMENDATIONS TO CITY AUTHORITIES 

1. It is recommended that immediate steps be taken to bring about 
the centralization of the business of milk distribution in the City of 
Rochester, on the ground that the present competitive sysera is a menace 
to public health because of insufficient sanitary care of the product, and 
because of unnecessary and excessive expenses. 

2. That the City of Rochester join with the City of New York and 
other cities of the State of New York in asking for legislation at Albany 
for the purpose of securing for the City of Rochester and other cities 
such additional legal powers as will enable the city to control the distribu- 
tion of milk, and that such legislation be asked for on the ground that such 
municipal control is necessary to properly safeguard public health. 

3. That, in particular, the City of Rochester ask for amendments 
to the City Charter which will give to the city the following powers : 

(a) Power to establish and operate a municipal milk distributing 
business under municipal auspices, and to purchase the property of exist- 
ing milk distributers if necessary. 

(b) Power to grant a franchise to a public service corporation for 
the distribution of milk and for municipal control of the same in respect 
to profits and prices and in all other respects necessary to protect the 
milk consumer against the abuse of power by such a corporation. 



MILK SURVEY OF THE CITY OF ROCHESTER 221 

(c) Power to examine the books and accounts of all milk dealers 
distributing milk in the city, and to subpoena such books and such dealers 
for examination by designated city authorities when the interests of 
public health demand such examinations. 

(d) That the legal status of the director of the Bureau of Health 
of the City of Rochester should be made identical with the legal status of 
the health officers of the City of New York, the City of Buffalo, and 
other first-class cities, so that this bureau, in its administration, will not 
be independent in any way of its responsibilities to the city government. 

4. That, if the State Legislature will grant such powers for the 
control of the distribution of milk, any or all of these powers be made 
discretionary with the city and not mandatory. 

5. That the city shall exercise such powers only in the event that 
the system of milk distribution provided by the milk industry proves itself 
to be inadequate for the proper safeguarding of public health through the 
practice of insanitary or imperfect methods or uneconomical service. 

6. That the city authorities encourage the centralization of the 
business of milk distribution under the auspices of the. present industry 
with the object of avoiding, if possible, the establishment of muncipal 
ownership through the securing of efficient service under private owner- 
ship. 

7. That the city immediately establish, as part of its sanitary code, 
milk ordinances and regulations suitable for a city of the first class, and 
in particular an ordinance requiring the pasteurization of all milk not 
produced from cows tuberculin tested and otherwise safeguarded against 
cattle diseases, human diseases and contamination, such requirements be- 
ing equivalent to the reqviirements for certified milk. 

8. That the city require the pasteurization of all milk used by public 
institutions and take steps to provide a milk supply adequate for the needs 
of all of the inmates of public institutions. 

9. That the city arrange to dispense milk through the public schools 
at cost, so that at least one half-pint bottle (one glass) of milk can be 
placed within reach of every school child every day at the school lunch 
hour, in accordance with the system in successful operation at the present 
time in the City of Seattle. 

10. That, under the auspices of the Board of Education, the weight 
and height of every school child be determined and recorded annually, 
preferably in one of the fall months, and that the relationship of the diet 
of the child, especially with respect to the drinking of milk, be also 
recorded with the purpose of determining the degree of undernourish- 
ment of school children and providing against such undernourishment. 

(The data secured on this subject under this survey, although 
meagre and incomplete, emphatically demonstrates the vital importance 



222 MILK SURVEY OF THE CITY OF ROCHESTER 

of milk to the growing child and suggests the great benefits which can 
be secured through systematic recording of the children's weight and 
height and steps to provide children with the milk required for their 
growing needs. In no other way can the city do so much for the welfare 
of its future citizens.) 

11. That the city establish and maintain a sufficient number of 
infant milk depots, similar to those operated by the City of New York 
and elsewhere, for the dispensing of milk for infants and for children 
under school age to place within reach of the children of the poor, at a 
reasonable price, all milk required for such infants and children. These 
depots might be located in public schools or at other convenient points in 
the congested districts. The success of the New York infant milk depots 
justifies the City of Rochester in furnishing such a milk supply for infant 
feeding under such auspices. 

II 

RECOMMENDATIONS TO MILK PRODUCERS 

1. It is recommended that the milk producers establish a milk 
factory for the handling of surplus milk, either in the City of Rochester 
or at some other convenient point. The milk producers' organization 
should assume entire responsibility for all surplus milk. Through the 
centralization of the manufacture of surplus milk into milk products, a 
great saving in loss from surplus would result. 

The producers' organization would then be in a position to furnish 
to the milk distributing concerns of Rochester exactly the quantity of 
fluid milk which the market demands and losses on surplus, due to lack 
of facilities for handling the same on the part of small dealers, would be 
entirely eliminated. In such a surplus factory the producers can control 
to better advantage the milk furnished by the individual members of their 
organization, making butter fat tests, milk measurements, and carrying 
out cooling and refrigeration much more effectively than is done under 
the present competitive system. 

2. That milk producers establish a centralized hauling system for 
hauling milk from dairy farms to the point of shipment, thus eliminating 
the numerous individual farmers' wagons now engaged in such hauling. 

3. That milk producers eliminate as rapidly as possible dairy cows 
which are unprofitable, by establishing throughout the milk producing 
territory cow testing associations which will include every milk producer. 

4. That milk producers increase the size of their herds as the quick- 
est means of reducing the cost of milk production. 

5. That the milk producers' organization agree upon a standard 
type and size of milk can, and that all producers use the same type and 



MILK SURVEY OF THE CITY OF ROCHESTER 223 

size of milk can, for the purpose of reducing the cost of handling milk 
cans and increasing the efficiency of the washing and sterilizing of milk 
cans. 

Ill 

RECOMMENDATIONS TO MILK DEALERS 

1. It is recommended that the milk dealers of the City of Roch- 
ester immediately take steps to centralize the business of milk distribution 
under their own auspices for the purpose of demonstrating to the City 
of Rochester that under such centralized system they can render to the 
city a service which will handle the product in such a sanitary and 
economical manner that their service will furnish satisfactory safeguards 
for the public health of the city. Only by rendering such efficient service 
as this can the milk distributers hope to retain the business of milk dis- 
tribution in the hands of private capital, and avoid the establishment by 
the city of complete municipal control. 

The advantages to be gained by the milk dealers under such cen- 
tralization, including economies in freight, hauling, plant operations, 
delivery, office charges, purchase of supplies, all other expenses, and 
administration charges, have been pointed out in detail in the previous 
pages in this report. 

IV 

RECOMMENDATIONS TO MILK CONSUMERS 

1. It is recommended that every parent or guardian of children 
secure not less than one quart of milk daily for the use of every growing 
child in the City of Rochester, and that those persons who are informed 
regarding the vital necessity of milk and other dairy products in the 
diet of the child make it their business to convey this information to those 
less well informed, and that, through women's clubs and other consumers' 
organizations, publicity be given to the food value of milk as compared 
with other food, even at present prices, and that all of the consumers of 
Rochester be. made to realize that there is no substitute for milk in the 
diet of the growing child. 

2. That milk consumers co-operate in reducing the loss on milk 
bottles by promptly returning to the milk dealer all milk bottles delivered 
to them, and that they also reduce the cost of bottle washing by return- 
ing the milk bottles in a cleanly condition. 

3. That milk consumers co-operate in reducing the cost of collect- 
ing milk accounts by promptly paying the milk dealer for all milk re- 
ceived. 

(In many cities of the United States and Canada a milk ticket system 
is used. The milk consumer pays cash for milk tickets in advance, thus 



224 MILK SURVEY OF THE CITY OF ROCHESTER 

making the collection of milk accounts unnecessary. This system has 
many arguments in its favor in a city of the type of Rochester.) 

RECOMMENDATIONS TO THE CITY AS A WHOLE 

In considering the milk problem faced by the City of Rochester, 
there are certain aspects which afifect the producer, distributor, consumer 
and city independently, and other aspects which affect these four groups 
of persons jointly. 

The excessive costs of milk distribution shown in the material pre- 
sented in this milk survey are costs which have grown up as a result of 
the competitive system. It must be recognized that the city itself is 
primarily responsible for the competitive system of milk distribution 
which now exists. 

Rochester is not alone in this responsibility, but the same is shared 
by all other cities of America which, by their antagonism to centralization 
and monopoly in the milk industry, have fostered within their limits the 
growth and development of the competitive system of milk distribution. 

Public attention which has now concerned itself in Rochester and 
other cities with the cost of milk and the relation of milk to public health 
has suddenly discovered this competitive system carries with it numer- 
ous unnecessary expenses. The remedy which is prescribed as a result 
of all milk surveys and all commissions and committees appointed to in- 
quire into the cost of milk distribution is, in every instance, centralization 
and monopoly. In short, the competitive system which the people them- 
selves have fostered and developed is now charged with the excessive cost 
of milk to the milk consumers, and held responsible for not providing 
milk at such prices as could be secured only under a monopoly. 

The attitude of the public mind toward the milk industry is there- 
fore inconsistent and unjust in that the remedy, viz., centralization and 
monopoly, which is universally prescribed, is a remedy which the indus- 
try itself has not been allowed to apply. Any efforts toward centraliza- 
tion and monopoly by the milk industry have been universally cried down 
by the public on the ground that the result would be a trust injurious to 
public welfare. 

The advantages of centralization and monopoly have become so 
obvious that the public has been entirely converted to the value of this 
remedy, and, in fact, convinced that centralization and monopoly con- 
stitutes the only remedy for reducing the cost of milk distribution. 

Before proceeding to apply such a remedy as this under municipal 
auspices, it would seem only fair and just to invite the milk industry itself 
to make a demonstration of the efficiency of its service to the public 
through the application of this remedy under its own auspices. 



MILK SURVEY OF THE CITY OF ROCHESTER 225 

In three cities in America the milk industry has been tacitly per- 
mitted to adopt centralization to such an extent that monopolies are prac- 
tically in existence. These cities are : Calgary, Canada ; Ottawa, Canada, 
and Milwaukee, Wisconsin. An examination of the conditions in these 
cities shows clearly that these milk monopolies have not taken undue 
advantage of their power, but have, as a matter of fact, rendered to the 
cities named a service unequaled by the milk industries of any other cities 
on this continent. In these three cities the cost of milk has been kept at 
the lowest point, and the dealers' spread, or share of the milk price, has 
been lower than in any other cities. 

Consequently, in the City of Rochester, before proceeding to estab- 
lish a monopoly under municipal auspices, it would seem to be more 
consistent with purely American policies to permit the milk industry 
itself to apply the principle of centralization to the business of milk 
distribution, and to make a demonstration to the citizens of Rochester 
of the efficiency of the service which it can render under such central- 
ization. 

The business of milk distribution is highly specialized. Public 
ownership would furnish no guarantee of efficient service unless it could 
guarantee the same high degree of specialization which has already been 
developed in the present industry. Public ownership should be held in 
the background as a last resort. It should be applied only in the event 
that the industry itself proves incompetent to render efficient service. 

The proposition recently made by the executive officer of the largest 
milk company in the City of New York to the city authorities is one which 
deserves serious consideration by that city and by all other cities. This 
proposition is that a milk monopoly be organized by the milk distributers, 
but that the board of directors of such monopoly should include repre- 
sentatives of milk consumers and milk producers, and that a limitation of 
profits should be established, and that the books of the monopoly should 
be open to the public. This proposition has many features which would 
contribute to a satis factoiy solution of the problem of milk distribution, 
and is a remedy which, in the opinion of the director of this survey, 
should be tried in advance of the application of municipal ownership. 

The milk monopoly, under private ownership, would be in the public 
interests only . provided the public were properly safeguarded against the 
abuse of the additional power which the milk industry would thus secure. 
The only way in which such a power can be properly counterbalanced 
would be through the securing of such additional legal powers by the 
city itself that the city can at any time control such monopoly and take 
over the business of milk distribution under its own auspices. 

Therefore, the director of this survey, recommends that these two 
movements be inaugurated hand in hand. On the one hand the estab- 



226 MILK SURVEY OF THE CITY OF ROCHESTER 

lishment of centralization under the auspices of the industry, and on the 
other hand the securing by the city of such additional legal powers as 
will effectively curb and control the action of such monopoly, with the 
ultimate purpose in the background of taking over the entire industry of 
milk distribution by the city in the event that the service rendered by the 
monopoly proves inadequate for the safeguarding of public health. 

The reorganization of the milk industry from the competitive system 
which now exists to a centralized system will necessarily require extensive 
readjustments and at least several months of time in order to prevent 
unnecessary losses and to do justice to all business concerns. 

The city authorities should allow a reasonable length of time for 
such a reorganization to be accomplished. If, after the expiration of 
such time, the industry shows no inclination to bring about such a reor- 
ganization, it will be proper for the city authorities to consider the cen- 
tralization of the industry under its own auspices. 

The feeding of infants and children presents a special problem. In 
order to place sufficient milk within reach of every growing child, the 
•municipality is justified in going into this branch of the milk business 
under municipal auspices. The best channels for milk distribution to 
children and infants are the public schools and infant milk depots. 

It is, therefore, recommended that the City of Rochester take im- 
mediate steps for municipal milk distribution for children and infants 
through the public schools and other infant milk stations. 

RECOMMENDATIONS OF THE PUBLIC SAFETY COMMITTEE 
OF THE COMMON COUNCIL 

Rochester, N. Y., Dec. 23, 1919. 
To the Honorable, the Common Council of the City of Rochester : 

Gentlemen — Your Public Safety Committee whom you directed by ordinance 
duly passed on the 22d day of April, 1919, to inquire into the several matters per- 
taining to the production and distribution of milk as afifecting the City of Rochester, 
as more specifically set forth in the resolution which is hereinafter contained, do 
respectfully report as follows : 

Your committee, upon authority granted by the Board of Estimate and Appor- 
tionment, employed Dr. Charles E. North of New York City, as director of the 
investigation, and such other assistants as he recommended. Much valuable assist- 
ance was given by organizations and individuals particularly interested in the 
subject, to all of whom the committee feels deeply indebted. 

Examination on the ground was made of about one hundred and fifty pro- 
ducers of milk shipped to the City of Rochester, in various localities, with a view 
to ascertaining what it actually costs to produce the milk. A careful survey was 
made of tlie plant and business of each dealer distributing milk within the Cityof 
Rochester, for the purpose of determining the actual cost of milk distribution 
within our city limits. 

Laboratory tests were made by the Committee's experts, of many samples of 
milk sold in the city and a careful inquiry was conducted into the character, 
quality and amount of milk and its products used in various institutions in the 
city and in private homes as well. 

The results of the investigation are submitted herewith in the form of tabula- 
tions and explanatory comment appropriately grouped in chapters. 



MILK SURVEY OF THE CITY OF ROCHESTER 227 

Your committee sought to afford every party interested an opportunity to state 
and prove his case, and determined from the outset to learn and permanently record 
for the benefit of the people of Rochester the truth in respect to every phase of 
the milk question, and thus to arrive at and establish a basis for any action which 
it might hereafter be deemed advisable to take. Your committee feels that this 
has been fully accomplished. 

Dr. North was asked to prepare and submit such recommendations as he 
wished to make after concluding the investigation. These recommendations appear 
at the foot of the report. As to the svxggestion that the City seek legislative author- 
ity to grant a franchise to a public service corporation for the distribution of milk, 
your committee is advised that the distribution of milk is not and may not properly 
be considered a public utility to be the subject of a franchise, but your committee 
concurs in the recommendation to secure all possible proper legislative authority 
for the direction and control of the distribution of milk. 

Your committee finds and respectfully reports that it is not expedient for the 
City to attempt the purchase and distribution by the City of Rochester of all milk 
used within its limits at this time. 

It must be borne in mind that having once embarked upon such an enterprise 
which would involve the expenditure of upwards of a million dollars, the City 
could not abandon the project but would be obliged to continue whether it suc- 
ceeded or not. In other words, it is not a matter in which experiment is possible. 
Our investigation has disclosed that centralization of milk distribution will result 
in important economies which would accrvie to the financial benefit of the con- 
sumers of milk by lowering the price to them. There is, however, no reason whj' 
such centralization may not be carried out by private individual effort, and your 
committee is of the opinion that the City of Rochester should attempt to secure 
this before attempting municipal ownership. 

To produce the milk now consumed in the City of Rochester on municipally 
owned farms would require the expenditure of about twenty million dollars for 
land alone. Your committee has been unable to find that the City of Rochester 
would be able to lower the cost of production by this method, and therefore reports 
that to enter upon such a course would not be expedient. 

Your committee respectfully recommends the adoption and rigid enforcement of 
ordinances prohibiting the retail sale of milk or cream within the city limits other- 
wise than in carefully closed containers, filled before being loaded for delivery, 
and requiring that all milk and cream sold at wholesale be contained in sealed cans 
or other containers. 

Your committee further respectfully recommends the adoption and rigid en- 
forcement of an ordinance requiring the proper pasteurization under municipal 
inspection and control, of all milk and cream sold in the City of Rochester, excepi: 
certified and grade A milk, and that such ordinance take effect at the end of such 
a period as will afford reasonable opportunity for dealers to arrange their equip- 
ment accordingly. 

The weighing and measuring of children in the public schools is regularly, 
carried out during the year under the direction of the Health Officer, and is now 
being done. Your committee procured other data in respect to race, sex, milk-diet, 
etc., through the Department of Education, but a complete tabulation cannot be 
had until the weighing and measuring has been completed, and we have been able 
to include in this report only one table. 

We respectfully recommend that when the weighing and measuring for the 
present school year shall have been finished, the tabulation be completed and made 
available for reference. 

Your committee further respectfully recommends that its report be printed and 
bound so as to be available to all properly interested persons and organizations, 
with such arrangements and restrictions in respect to distribution either gratis or 
by sale as j'our honorable body shall deem wise. 

Respectfully submitted, 

GEORGE B. HART, 
B. B. RAPPLEYE, 
TOHN A. RUSSELL, 
LINDEN STEELSMITH, 
MARTIN B. O'NEIL, 
Public Safety Committee of the Common Council. 



LIBRARY OF CONGRESS 



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